GIFT  OF 


HENRY  L.  BOLTWOOD. 

The  first  township  high  school  principal  in  Illinois   who  organized 
the  Princeton  Township  High  School  in  September,  1 


ILLINOIS  HIGH   SCHOOLS 


Their   Organization,    Maintenance,  Administration   and  Instruction 
with  Particular  Reference  to  the  Township  High  School 


BY 

LEWIS  WILBUR  SMITH,  A.  M., 

Principal  of  Thornton  Township  High  School 

Harvey,  111. 


(JLW^T  Issued  by 

FRANCIS  G.  BLAIR, 

Superintendent  of  Public  Instruction 


[Printed  by  authority   of  the   State   of  Illinois.] 


|r 


SPRINGFIELD,  ILL. 

ILLINOIS  STATE  JOURNAL  Co.,  STATE  PRINTERS. 
1917 

P4926— 2500 


ACKNOWLEDGEMENTS. 


The  body  of  the  work  in  the  following  study  is  based  primarily  on 
original  records  in  the  office  of  the  Department  of  Public  Instruction  of 
the  State  of  Illinois.  These  records  were  made  available  to  me  for  the 
purposes  of  this  study  by  the  cordial  cooperation  of  that  office.  For  this 
cooperation  and  assistance  I  am  thoroughly  grateful. 

Liberty  to  pursue  this  study  effectively  was  made  possible  by  the. 
unusual  action  of  the  members  of  the  board  of  education  of  Thornton 
Township  High  School,  who  in  order  to  promote  this  investigation  gave 
me  permission  to  devote  to  it  whatever  time  might  be  necessary,  con- 
sistent with  the  adequate  discharge  of  my  regular  duties.  I  am  under 
great  obligation  to  them  for  the  opportunity  which  this  permission 
afforded. 

L.  W.  S. 


364449 


TABLE  OF  CONTENTS. 


Frontispiece.  PAGE. 

Introduction — Hon.    F.    G.    Blair 9 

Chapter  I — Sources  and  Method  of  the  Investigation 11 

Chapter  II— The  Constitution  of  the  Township  High  School 24 

Chapter  III— The    Plant 31 

Chapter  IV — Finance      71 

Chapter  V — The  Course  of  Study 88 

Chapter  VI— The  Principal 116 

Chapter  VII — The     Teachers 150 

Chapter  VIII— The    Student    Body 175 

Chapter  IX— Efficiency  of  High  School  Graduates  in  the  University 198 

Chapter  X— The  Territorial  Unit  Underlying  the  Township  High  School. 222 

Chapter  XI— Launching  the  Tow'nship  High   School 242 

Chapter  XII — Conclusion     250 

Appendices     283 


INTRODUCTION. 


No  other  part  of  the  common  school  system  is  in  such  a  state  of 
flux  and  flow  as  that  part  called  the  high  school.  Even  the  number  of 
years  of  work  to  be  assembled  under  this  term  is  a  matter  of  discussion. 
The  unusual  growth  in  attendance  in  these  upper  grades  of  the  common 
school  has  forced  us  into  a  thoroughgoing  investigation  of  all  the 
elements  and  forces  involved  in  the  high  school  situation. 

In  1906  there  were  52,394  pupils  enrolled  in  the  high  schools  of 
Illinois.  In  the  year  1916  there  were  102,870  enrolled,  an  increase  of  96 
per  cent  in  ten  years,  while  during  the  same  period  the  increase  in  the 
enrollment  in  the  elementary  grades  was  only  4.8  per  cent.  During  the 
year  ending  June  30,  1916,  the  enrollment  in  the  high  schools  had 
increased  10.5  per  cent  over  the  previous  year,  while  the  enrollment  in 
the  elementary  schools  had  increased  only  1  per  cent. 

In  1906  there  were  438  high  schools  reported  to  this  office.  In  1916 
there  were  827  high  schools.  During  this  decade  the  number  of  teachers 
employed  in  the  high  schools  increased  from  2,057  to  4,691.  The 
operating  cost  had  grown  from  $2,119,814  to  $6,788,542.  The  value  of 
the  equipment  had  increased  from  $7,982,988  to  $26,233,583. 

These  data  indicate  clearly  the  need  of  a  thoroughgoing  study  of 
the  laws,  plans  and  methods  for  organizing,,  maintaining^  administering 
and  instructing  these  high  schools.  In  Illinois  there  are  at  least  three 
distinct  plans  and  methods  warranted  by  law  and  by  custom  for  organ- 
izing and  maintaining  high  schools. 

The  oldest  of  these  was  the  establishment  of  a  high  school  as  a  mere 
extension  of  the  elementary  school  under  the  control  and  management 
of  the  same  board  of  education.  With  the  widespread  demand  for  the 
establishment  of  high  school  privileges,  it  was  found  that  many  districts 
were  unable  to  maintain  a  good  elementary  school  and  a  good  high 
school  out  of  the  proceeds  of  the  one  tax  allowed  by  law.  It  was  also 
discovered  that  where  the  high  school  and  the  elementary  schools  were 
placed  in  competition  for  their  share  of  the  local  school  funds  the  high 
school  was  sure  to  procure  a  relatively  larger  portion  of  the  fund  than 
the  elementary  schools,  the  pupils  of  these  lower  grades  losing  something 
in  the  length  of  term  and  equipment,  in  the  variety  of  courses  of  its 
instruction  and  in  the  quality  of  the  teaching.  Mainly  to  overcome  these 
difficulties,  the  Township  High  School  Law  was  enacted.  It  provided  a 
plan  and  a  method  for  organizing  larger  districts,  including  the  under- 
lying elementary  districts.  The  township  high  school  district  thus 
formed  with  its  regularly  constituted  board  of  education  was  given  the 
power  to  levy  a  tax  to  operate  a  high  school  independent  of  the  tax  laid 
by  the  boards  in  the  underlying  districts  for  maintaining  the  elementary 
schools. 


10 


The  nra  la\v  c<i'  this  kiad  was  in  the  nature  of  a  special  charter, 
under  which  was  established  the  Princeton  Township  High  School.  In 
1872  the  provisions  of  this  law  were  made  general.  At  almost  every 
subsequent  session  of  the  General  Assembly  the  law  has  been  modified. 
Substantially  100  high  schools  have  been  established  and  are  in  operation 
under  this  old  Township  High  School  Law.  In  1911  a  new  form  of  the 
Township  High  School  Law  was  enacted.  The  plan  and  method  for 
organizing  the  district  were  made  easier.  Under  this  law  within  the 
brief  period  of  five  years  193  districts  were  established. 

Another  method  which  has  not  been  very  generally  used  is  a  mod- 
ification of  the  first  plan.  It  provided  for  the  consolidation  of  elementary 
school  districts  into  one  central  school  under  a  board  which  may  provide 
high  school  privileges,  as  well  as  elementary  school  privileges  to  the 
pupils  enrolled. 

It  is  not  strange  that  in  such  a  period  of  great  development  in  high 
school  organization,  with  such  variety  in  plan  and  method  for  effecting 
these  organizations,  with  such  widely  variant  ideas  as  to  what  should 
be  the  program  of  studies  and  the  method  of  instruction,  confusion  and 
sometimes  conflict  has  arisen.  Boards  of  education  and  supervising 
officers  are  seeking  earnestly  to  discover  the  basis  of  observed  fact  on 
which  to  project  their  plan  of  organization  and  administration.  Many 
surveys  and  investigations  have  been  made  along  this  line.  So  far  as 
my  information  goes,  no  investigation  of  such  a  thoroughgoing  and 
worth  while  character  into  the  fundamental  elements  and  factors  of  the 
question  has  ever  been  made  as  the  one,  the  results  and  conclusions  of 
which  are  presented  in  this  volume. 

The  office  of  Public  Instruction  and  all  school  officers  related  to 
the  high  schools  of  Illinois  are  under  obligations  to  him  who  has,  with 
painstaking  care  and  thoroughness,  studied  the  situation,  compiled  the 
facts  and  drawn  the  conclusions. 


Superintendent. 


11 


CHAPTER  I. 

SOUECES  AND  METHOD  OE  THE  INVESTIGATION. 

It  is  the  purpose  of  this  paper  to  describe  as  thoroughly  as  possible 
the  charcteristics  of  the  high  schools  of  Illinois  with  particular  refer- 
ence to  the  township  high  school.  In  studying  the  township  high  schools 
the  comparative  method  has  been  followed  and  consequently  the  infor- 
mation concerning  the  city  high  schools  is  almost  as  complete  as  that  for 
the  township  high  schools.  This  report  is  primarily  concerned  with 
their  actual  status  and  operation  as  educational  institutions.  In  studying 
the  characteristics  of  this  group  of  schools  it  is  our  aim  not  only  to 
describe  what  is  found  but  also  to  set  up  certain  standards  of  efficiency. 
For  example,  the  excellence  of  the  plant  and  the  completeness  of  the 
equipment  contribute  to  the  efficiency  of  a  school.  However,  we  might 
find  excellence  of  equipment  in  certain  features  and  deficiencies  in  other 
features.  We  can  estimate  the  completeness  of  a  school  or  a  system  of 
schools  only  by  examining  all  or  nearly  all  its  factors.  No  measure  of 
efficiency,  however,  is  complete  which  does  not  give  an  account  of  the 
efficiency  of  students  after  they  have  left  the  school.  At  the  present 
time  there  are  no  adequate  standards  by  which  to  measure  the  efficiency 
of  high  school  students,  though  such  standards  are  now  in  process  of 
development.  In  this  study  we  have  not  been  able  to  find  any  material 
which  bears  directly  upon  the  efficiency  of  students  except  the  careers 
of  the  graduates  from  the  various  high  schools  in  the  university.  This  is 
a  just  though  not  a  complete  measure  of  efficiency,  and  will  be  dis- 
cussed in  detail  in  a  later  chapter. 

The  largest  part  of  the  material  for  this  report  was  derived  from 
records  entered  upon  a  blank  in  the  State  Superintendent's  office,  known 
as  Director's  Annual  Eeport  (Form  No.  2).  A  copy  of  this  blank  is 
as  follows : 


12 


TO  BE  FILLED  OUT  BY  THE  SUPERINTENDENT  OF  SCHOOLS,  AIDED  BY  THE  CLEEK  OF  THE  BOARD. 

ANNUAL  KEPORT  (FORM  2). 

This  form  to  be  used  in  reporting  to  the  township  treasurer  and  county  superintendent  the  following 

schools:    1st— All  districts  with  cities  and  villages  having  a  population  of  1,000  or  more.    2d— All 

districts  maintaining  three  or  more  years  of  high  school.    3d — All  districts  maintaining 

a  two  year  high  school  which  holds  a  certificate  of  recognition  by  the  department 

of  public  instruction. 


For  the  year  ending  June  30, 1915. 


A  prompt  and  careful  report  of  all  required  statistics  is  one  of  the  conditions  of  recognition  of  any  high 
school  by  the  department  of  public  instruction. 


Name  of  District No County,  Illinois. 


1.  School  census: 


All  under  21  years  of  age. 

Boys. 

Girls. 

Total. 

All  between  6  and  21 
years  of  age. 

Boys. 

Girls. 

Total. 

Date  of  census: 


.1915 


Elementary. 


Kinder- 
garten. 

1st  yr. 

2dyr. 

3dyr. 

4th  yr. 

5th  yr. 

6th  yr. 

7th  yr. 

8th  yr. 

Total. 

^ 
1 

PQ 

jyj 
^ 

3 

i 

0 

PQ 

£ 

b 

3 

CO 

O 

PQ 

1 

8 

1 
PQ 

3 

o5 
1 

PQ 

2 

s 

O 

1 

PQ 

| 

3 

« 

•B 
3 

1 

PQ 

3 

I- 

PQ 

3 

a. 
1 

PQ 

£ 

f_f 

O 

1 

Secondary  (High). 


9th  yr. 

10th  yr. 

llth  yr. 

12th  yr. 

Total. 

Grand  total 

PQ 

3 

PQ 

3 

PQ 

i 

O 

1 

PQ 

TH 

3 

PQ 

3 

I 

ri 

3 

1 

High  school  courses  offered: 
Indicate  by  X  and  give  length. 


3.  Length  of  school  year  in  months Actual  number  of  days 

in  session 

4.  Whole  number  of  different 

persons  employed  as  teach- 
ers during  the  year:  (In- 
clude all  who  taught  part 
of  the  year) Men Women Total 

5.  Number  of  eighth  grade  pro- 

motions  Boys Girls Total 

6.  Number  of  elementary  tui- 

tion pupils Boys Girls Total 

7.  Number  of  high  school  grad- 

uates   Boys Girls Total 

8.  Number  of  high  school  tui- 

tion pupils Boys Girls Total 


— 

Academic  (classical, 
scientific,  etc.) 

Yrs. 

Commercial 

Yrs. 

— 

Technical  (M.  T.) 

Yrs. 

Agricultural 

Yrs. 

Domestic  Economy 

Yrs. 

13 


/ 

9.  Administrative  officers: 
(a)  Superintendents  who  do  no  teaching 

Total  for  elementary 
and  secondary 
(high)  schools. 

Account 
of  secondary 
schools  only. 

XX 

X 

X 

XX 

(b)  Principals  and  supervisors  who  teach  less  than  half 
time 

10.  Teachers  and  principals  who  teach  half  time  or  more.    (If 
more  than  one  person  has  taught  in  a  room,  count  the 
one  teaching  the  longer  part  of  the  term) 

11.  Whole  number  of  teaching  positions  (sum  of  9a,  9b  and 
10                                                                                           ) 

= 

= 

= 

= 

Men 

Women 

12.  Number  of  teachers,  graduates  of: 
(a)  College  and  State  Normal  School 

— 

- 

— 

— 

— 

Total... 

(b)  College,  only  

(c)  State  Normal  School,  only  ...             .... 

(d)  Four-year  High  School  only 

Attended,  but  not  a  graduate  of: 
(e)  College 

(f)  State  Normal  School 

(g)  High  school 

(Give  only  highest  graduation  or  attendance.) 

13.  Amount  of  annual  salary  earned  by  teachers.    (If  a  posi- 
tion has  been  held  by  more  than  one  person,  give  as  an- 
nual salary  the  sum  earned  by  all  for  the  one  who  held 
the  position  longest)  . 

Men  

= 

= 

= 

= 

= 

— 

= 

= 

= 

=  = 

W  omen 

Total  .  . 

= 

— 

== 

= 

= 

— 

= 

= 

= 

== 

16.  Number  of  school  houses: 
(a)  Public  property 

(b)  Rented  

Total  

17.  Number  of  seats  or  sittings  for  study  (capacity)  (double 
seats  to  be  counted  as  two  sittings) 

===== 

— 

— 

— 

= 

= 

= 

== 

= 

= 

=  == 

18.  Value  of  school  property: 
(a)  Sites  and  buildings 

(b)  Equipment  (furniture  library  apparatus  etc  ) 

Total 

19.  Give  length  of  service  in  this  district  of  teachers  holding  positions  at  close  of  school: 

lyr 2yrs 3  yrs 4  yrs 5  yrs 6  yrs 7  yrs 

8yrs 9yrs 10  yrs 11  yrs 12yrs 13  yrs 14  yrs 

15  yrs 16  yrs 17  yrs 18  yrs 19  yrs 20  yrs.  or  more 

(Count  part  of  a  year  as  a  year.) 

20.  Promotion  of  health  and  attendance: 

(a)  Number  of  inspectors  employed Nurses Physicians Total . 

(b)  Number  of  truant  officers  employed Men Women Total. 

21.  Amount  of  taxes  for  all  school  purposes  levied  August,  1914 $ 

22.  Amount  cf  bonded  indebtedness,  July  1, 1915 $ 

23.  Number  of  volumes  in  school  library  exclusive  of  supplementary  reading  books  for  class  use. . . 

24.  Number  of  private  schools  in  the  district 

(a)  Number  of  teachers  employed .*. Men Women Total. 

(b)  Number  of  pupils  enrolled Boys Girls Total. 

25.  Number  of  persons  between  the  ages  of  12  and  21  unable 

to  read  and  write Bovs Girls Total. 

26.  Have  you  any  departmental  teaching  below  the  high  school? If  so,  which  years? 

27.  Amount  of  endowment  on  permanent  fund  belonging  to  this  district $ 


14 


29.     SALARIES  OF  TEACHERS. 
Enter  in  the  following  table  the  number  of  teachers  in  day  schools  paid  the  different  annual  salaries. 


Salaries. 

Elementary. 

Secondary. 

Salaries. 

Elementary. 

Secondary. 

Men. 

Women. 

Men. 

Women. 

Men. 

Women. 

Men. 

Women. 

Less  than  $   200. 
$    200  to       299. 
300  to       399. 
400  to       499. 
500  to        599. 
600  to     '   699. 
700  to        799. 
830  to        899. 
900  to        999. 
1,000  to    1,099. 
1,100  to    1,199. 

$1  200  to  SI  299 

1,300  to    1,399.. 
1  400  to    1  499 

1,500  to    1,599.. 
1  600  to    1  699 

l'700  to    1,799 

1,800  to    1,899.. 
1  900  to    1  999 

2,000  to    2,499.. 
2  500  to    2  999 

3  000  and  over. 

DISTRICT  EXPENDITURES. 

Township  treasnrers  are  not  to  copy  these  items. 

The  superintendents  of  districts  maintaining  a  school  system  that  includes  a  high  school  of  three 
years  or  more,  and  of  only  two  years  if  recognized  by  the  Department  of  Public  Instruction,  are  required 
to  fill  out  both  columns  on  pages  1  and  3  in  connection  with  the  rest  of  this  report.  The  first  column 
refers  to  the  whole  system,  including  the  high  school. 

No  item  under  general  control  is  to  be  given  in  the  high  school  column,  and  Items  18a  and  48  are  to 
be  blank  unless  the  building  is  used  exclusively  for  high  school  purposes.  In  case  an  item  under  current 
expense  is  used  for  both  elementary  and  secondary  schools,  the  amount  expended  should  be  apportioned 
between  the  two  classes  of  schools,  except  items  under  general  control  as  mentioned  above. 

Township  high  schools  may  be  reported  in  total  column. 

A  prompt  and  careful  report  of  all  required  statistics  is  one  of  the  conditions  upon  which  the  annual 
registration  of  certificates  or  their  renewal  may  be  secured. 


Current  expenses. 

Total  for  elementary  and 
secondary  (high)  schools. 

Expended  for  secondary 
(high)  schools  only. 

42.  General  control: 
(a)  School  boards  and  business 
offices 

$ 

X 
X 

X 

X 
X 

X 

X 

X 

X 

X 
X 

X 

X 
X 

X 

X 
X 

X 

X 
X 

X 

(b)  Compulsory  attendance 

(c)  Superintendents  who  do  no 
teaching 

43.  Instruction: 
(a)  Supervisors  and  principals 
who  teach  less  than  half 
time 

(b)  Teachers    and    principals 
who  teach  half  time  or 

(c)  Textbooks,     stationery, 

(d)  Interest  on'teachers'  orders 
(e>  Tuition  of  transferred  pu- 
pils (paid  by  this  district) 
44.  Operating  school: 

(b)  Fuel,  water,  light,'  power, 
janitors'  supplies,  etc.  . 
45.  Maintenance  of  plant   (repairs, 
replacement    of   equip- 

46.  Auxiliary  agencies: 

(c)  Transportation  of  pupils   . 
(d)  Rent 

, 

(0 

•"    (Itemize  all  amounts  over  $10.00) 

CAPITAL   OUTLAY. 

48.  New    grounds    and    buildings, 
alterations  of  old  build- 

49.  New  equipment   (not  replace- 

15 


SUMMARY  FOR  HIGH  SCHOOL  ONLY 

Enrollment 

Average  daily  attendance 

CURRENT  EXPENSES. 

General  control 

Instruction 

Operating  school  plant 

Maintenance  of  plant 

Auxiliary  agencies 


Total  current  expenses  — 
Cost  per  enrollment 

CAPITAL  OUTLAY. 

New  grounds  and  buildings . . . 
New  equipment 


Total  capital  outlay. 
Total  ext 


I  1 


OFFICE  OF  SUPERINTENDENT  OF  PUBLIC  INSTRUCTION. 

INSTRUCTIONS. 

Item  1.  Report  to  the  treasurer  of  each  township  in  which  your  district  lies  the  correct  number  of 
persons  under  21  years  of  age  and  the  number  between  6  and  21  years  of  age,  living  in  that  part  of  your 
district  in  his  township. 

If  your  district  lies  in  two  or  more  counties,  you  must  show  in  your  report  the  number  of  minors  and 
the  number  of  school  age  living  in  each  county.  This  is  to  give  your  district  its  share  of  the  distributive 
fund  of  that  county. 

Have  the  census  taken  in  June,  and  accurately.  This  is  made  the  basis  for  the  apportionment  of 
the  State  School  Fund  by  the  County  Superintendent.  * 

Items  2  to  29.  Make  a  full  report  of  these  items  to  the  treasurer  of  the  township  in  which  your  school 
house  is  located.  Should  you  have  two  school  houses  located  in  different  townships,  report  in  full,  only, 
to  the  treasurer  having  charge  of  the  district  funds. 

High  schools.  The  superintendents  or  principals  of  districts  maintaining  a  high  school  of  three 
years  or  more  and  of  only  two  years  if  recognized  by  the  Department  of  Public  Instruction,  both  district 
and  township,  are  to  fill  out  this  blank  in  duplicate,  one  copy  to  be  left  with  the  clerk  of  the  board  and 
filed  by  him  with  the  township  treasurer  and  one  copy  to  be  forwarded  to  the  county  superintendent 
who  shall  file  the  same  with  the  Superintendent  of  Public  Instruction. 

City  schools.  A  complete  report  of  all  city  schools  in  cities  and  villages  having  a  population  of  1,000 
or  more,  although  they  may  not  maintain  a  high  school,  should  be  made  by  the  superintendent  with  the 
assistance  of  the  clerk,  on  this  form,  in  duplicate.  One  copy  should  be  left  with  the  clerk  and  filed  by 
him  with  the  township  treasurer  and  one  copy  forwarded  to  the  County  Superintendent  of  Schools,  who 
shall  file  the  same  with  the  Superintendent  of  Public  Instruction. 

In  case  the  superintendent  does  not  oversee  the  taking  of  the  census  as  given  in  Item  1,  the  clerk  of 
the  board  should  see  that  it  is  given  before  sending  the  report  to  the  township  treasurer. 

Fill  out  all  items  accurate  and  complete,  and  file  with  the  treasurer  near  July  1st.  It  must  be  filed 
by  July  7th.  All  schedules  and  statements  must  be  filed  at  the  same  time. 

F.  G.  BLAIR,  Superintendent. 

It  will  be  noted  that  this  information  before  it  reaches  the  State 
Superintendent's  offices  passes  through  the  hands  of  several  responsible 
officers.  In  the  first  place  it  is  filled  out  by  the  superintendent  of  schools 
with  the  assistance  of  the  clerk  of  the  board.  It  is  then  sent  to  the 


16 


township  treasurer,  and  is  by  him  transmitted  to  the  county  superin- 
tendent. The  county  superintendent,,  after  receiving  these  various 
blanks,  forwards  them  to  the  State  Superintendent.  It  is  the  duty  of 
these  various  officers  to  check  over  these  blanks  as  they  come  in  and  see 
that  they  are  accurate.  When  a  certain  body  of  statistics  does  not  check, 
the  officer  who  checked  it  returns  it  to  the  one  who  had  the  blank  preced- 
ing him  and  has  it  corrected.  By  this  means  the  blank  is  checked  and 
corrected  by  several  officers  before  it  becomes  a  part  of  the  official  record 
of  the  State  Superintendent's  office.  It  thus  furnishes  a  reliable  body 
of  material  for  the  basis  of  statistical  calculation.  Furthermore,  it  is 
an  official  blank,  and  the  people  who  fill  it  out  have  a  definite  respon- 
sibility for  its  accuracy. 

School  officials  are  required  to  fill  out  this  blank.  On  this  account 
the  schools  make  more  complete  returns  than  is  common  in  answer  to 
questionnaires.  The  ordinary  questionnaire  calls  out  from  40  to  60  per 
cent  of  the  possible  answers. 

The  total  number  of  high  schools  reporting  on  the  blank  is  459, 
To  be  sure  many  of  them  are  not  accredited  by  the  North  Central 
Association  or  the  State  University  or  any  other  standardizing  agency. 
Many  of  them  have  a  very  meager  teaching  force  and  a  small  student 
body,  but  it  was  thought  best  to  make  a  study .  of  practically  all  of  the 
four-year  high  schools  in  the  State.  In  that  way  we  do  not  have  a 
specialized  group. 

A  second  body  of  records  in  the  State  Superintendent's  office  on 
which  this  investigation  was  based  is  the  approval  blank  of  the  Depart- 
ment of  Public  Instruction,  and  is  in  the  following  form: 

STATE   OF  ILLINOIS  DEPARTMENT  OF  PUBLIC  INSTRUCTION. 

APPROVAL  BLANK. 

Application  for  State  Approval  of  High  School  from  the High  School  at 

(To  the  Principal:    Fill  out  and  mail  this  application  blank  to  the  Superintendent  of  Public  Instruction, 

Springfield,  Illinois.) 

REPORT  FOR  SCHOOL  YEAR  191.. -191.. 

A.    General  Information. 

1.  How  is  your  school  governed?  (Indicate  by  underlining):  (a)  Township  board  of  five  members; 
(b)  township  board  of  seven  members;  (c)  board  of  education;  (d)  board  of  directors,  (e)  If  the  latter,  is 
it  a  "consolidated  district?" — 2.  When  was  the  school  established? — 3.  Name  of  city  super- 
intendent  —4.  Name  of  principal —5.  Name  of  secretary  of  the  board —6.  Is  the  school 

accredited  by  any  higher  institutions? If  so,  name  them. — 7.  If  not  a  four-year  high  school, 

are  your  graduates,  upon  entrance  at  any  four-year  high  school,  given  full  credit  for  work  done  in  your 

school? — 8.  If  so,  name  that  school — 9.  Number  of  pupils,  if  any,  admitted  to  the  ninth  grade 

at  the  middle  of  this  school  year:  Boys ;  girls —10.  Number' of  pupils,  if  any,  who  were  grad- 
uated at  the  middle  of  this  school  year:  Boys ;  girls — 11.  Total  enrollment  for  the  year — 

high  school  work  only: 


9th  year. 

10th  year. 

llth  year. 

12th  year. 

Postgraduates. 

Grand  total. 

Boys. 

Girls. 

Boys. 

Girls. 

Boys. 

Girls. 

Boys. 

Girls. 

Boys. 

Girls. 

Boys. 

Girls. 

1 

B.    Material  equipment. 

12.  Is  there  a  building  or  buildings  used  exclusively  by  the  high  school? —13.  If  so,  give  its 

estimated  value  (site  and  buildings) —14.  Value  of  equipment,  including  furniture,  library,  and 

apparatus —15.  If  not  a  separate  building  used  only  for  high  school,  how  many  rooms  are  used 

exclusively  for  high  school? State  facts  clearly —16.  Do  you  consider  the  rooms  well  adapted 

to  their  uses  as  to  size,  lighting,  convenience,  etc.? —17.  Are  your  rooms  provided  with  means  for 

artificial  lighting? If  so,  what  light? If  any  exceptions,  specify —18.  How  is  the  build- 
ing heated:    Stove,  hot  air  furnace,  steam  (direct  or  indirect),  hot  water? —19.  How  is  it  ventilated? 

—20.  Describe  and  locate  water  closets —21.  Describe  facilities  for  drinking  water —22. 

Describe  facilities  for  towels,  etc —23.  If  you  have  a  general  assembly  room,  how  many  will  it 


17 

seat? —24.  Have  you  a  stage  and  provisions  for  public  exhibitions  or  dramatic  performances? 

Give  particulars — 25.  Is  the  room  equipped  also  for  evening  meetings,  as  to  lighting,  etc.? 

—26.  Is  the  room  used  as  a  study  hall? —27.  Have  you  a  high  school  library? Number  of 

volumes Is  it  used  for  reference  only  or  also  for  supplementary  work  in  literature,  science,  and 

history?    Indicate  by  underlining.    Enlarge  upon  use  of  library — 28.  How  many  laboratories 

have  you  and  for  what  science  courses  are  they  equipped? —29.  Are  they  equipped  for  demonstra- 
tion by  the  teachers  only,  or  for  experiment  by  pupils  also?  (Indicate  by  underlining.) — 30.  How  many 

pupils  can  work  in  any  laboratory  at  one  time? —31.  Have  you  special  rooms  and  equipment  for 

manual  training? If  so,  give  brief  description —32.  Have  you  special  rooms  and  equipment 

for  domestic  science? If  so,  give  brief  description —33.  What  other  special  equipment  has  the 

school,  such  as  stereoptioon,  graph ophones,  stereoscopes,  relief  maps,  collection  of  pictures? —34. 

Have  you  a  gymnasium? If  so,  give  dimensions  and  tell  something  of  its  equipment — 35. 

Have  you  an  athletic  field? If  so,  give  size  and  items  of  interest —36.  Give  information  as  to 

control,  direction,  or  supervision  of  gymnasium  or  of  athletic  field 

C.    Organization. 

37.  Upon  what  conditions  are  pupils  admitted  to  the  9th  year? —38.  Number  of  years  in  your 

course? — 39.  Number  of  weeks  in  each  school  year? — 40.  How  many  units  (one  school  year's 

daily  work  in  one  study  or  equivalent)  is  a  pupil  expected  to  complete  in  one  year? —41.  Are  all 

classes  conducted  with  daily  recitations? Give  particulars -42.  How  many  teachers  are  em- 
ployed in  the  grade  schools  from  which  your  pupils  are  regularly  promoted  to  the  high  school?  (N.  B. 
High  schools  in  city  systems  or  receiving  promotions  from  school  systems  with  more  than  four  grade 
teachers  need  not  answer  this  question.) — 43.  Teachers  employed  during  the  school  year: 


Name. 

What 
kind  of 
certifi- 
cate does 
teacher 
hold? 

Annual 
salary. 

High 
school 
classes 
taught 
daily. 

Subjects 
taught. 

Education- 
Name  institutions 
and  number  of 
years,  give  degrees 
(if  any),  describe 
special  prepara- 
tion for  special 
work. 

Years  of  teaching 
experience  including 
present  year. 

Total 
years. 

Total 
high 
school 
exper- 
ience. 

Total 
in  this 
high 
school. 

Superintendent  

Principal 

N.  B.— If  needed,  use  supplementary  sheet,  similarly  ruled. 

44.  How  much  time  of  the  principal  is  now  given  to  supervision? What  do  you  consider  the 

most  helpful  form  of  supervision? — 45.  Does  daily  program  provide  for  doing  laboratory  work  in 

two  consecutive  periods? — 46.  Have  you  any  parents'  organizations? How  constituted? 

What  relation  to  the  school  authorities? What  is  their  chief  value? 

D.    Curriculum. 

47.  How  many  units  (see  question  40)  are  required  for  graduation? — 48.  How  many  of  these 

are  prescribed? —49.  How  many  elective? —50.  Name  the  prescribed  units? —51.  What 

half  units,  if  any,  are  offered? — 52.  What  is  the  length  of  recitation  periods? — 53.  Laboratory 

periods? —54.  Do  you  have  separate  "courses,"  as  academic,  classical,  literary,  scientific,  com- 
mercial, technical,  teachers'  course,  etc.?  Name  all  you  have: — 55.  If  you  do  not  use  the  "course" 

system,  describe  the  plan  you  have —56.  Give  a  complete  statement  of  your  curriculum,  indicating 

what  studies  are  offered  (i.  e.,  may  be  taken)  in  each  year,  and  what  studies  are  prescribed  (i,  e.,  must  be 
taken)  in  each  year,  and  showing  what  choices  are  allowed.  If  you  have  a  short  "vocational"  or  other 
course,  or  any  "course  within  a  course,"  give  information  clearly  about  that. 

If  the  "course"  plan  is  followed,  use  the  space  so  as  to  show  the  studies  for  each  course  separately . 


First  year. 

Second  year. 

Third  year. 

Fourth  year. 

N.  B.—  Write  the  prescribed  studies  at  the  top  of  each  column  before  writing  the  elective  studies,  and 
mark  them  P  (prescribed). 

Indicate  when  special  instruction  or  practice  is  given  as  in  chorus  music,  public  speaking,  gymnasium 
practice,  and  the  like. 
E.    Miscellaneous. 

57.  When  was  your  school  last  visited  by  a  representative  of  the  State  Department  of  Public  Instruc- 
tion? ......  —58.  By  a  representative  from  any  State  institution  of  higher  education?  ......  Name  it 

......  —59.  Has  your  school  accrediting  relations  with  any  other  colleges  or  universities?  .....  If  so,  name 

them  ......  —60.  How  many  in  all  have  graduated  from  your  school  in  the  last  three  years?  ......  —61. 

How  many  of  these  are  attending  or  have  attended  any  advanced  institution  of  learning—  college,  univer- 
sity, normal  school?  ......  —62.  Have  you  any  systematic  method  or  practice  of  "following  up"  graduates 

to  determine  their  record  in  after  life?  ......  —63.  Give  information  as  to  what  institutions  your  graduates 

usually  go  ;  make  your  answers  as  nearly  accurate  as  you  can  conveniently  ......  —64.  Give  any  items 

of  special  interest  or  importance,  that  may  help  in  forming  a  fair  judgment  of  your  school—  in  regard  to 
oratorical  or  debating  programs,  periodicals  published,  contests  engaged  in, 


athletics,  musical,  literary, 


,  ,  ,  ,  , 

public  exhibitions  of  any  kind,  honors  or  prizes  or  recognition  of  any  kind  won  b 
its  pupils  or  graduates  ......  —65.  Has  your  school  membership  in  any  interscho 

—2  I  H  S 


y  the  school  or  any  of 
lastjc  league  or  body 


18 


for  promoting  any  of  these  or  other  activities? If  so,  name  them —66.  What  is  your  practice 

in  the  matter  of  admitting  to  your  school,  for  advanced  standing,  those  whocome  from  other  highschools? 

—67.  Do 

schools? 

of  which  you  wou 


you  accept  for  admission  with  full  credit  the  graduates  of  the  tenth  year  from  any  other 

If  so.  name  them —68   Have  you  any  special  problems  or  difficulties  in  the  solution 

roula  like  to  have  the  assistance  of  the  State  Supervisor  of  High  Schools?. . . 


Date  when  this  blank  was  filled  in. 


uper visor  of  High  Schools?. 

By  whom  filled". 


e-  o 
«<  * 


Sg 

h 
O 

H 
BE 

H 

S 
H 

M 


1 

•S 

02 

-a 

s 

•8 


a 

* 

£ 

2 

•?  i 

'S 

; 

0 

.    2 

I 

i 

This  report  for 
made  out  by 

3 

This  blank  is  in  the  form  of  an  application  of  a  high  school  for 
approval  by  the  Department  of  Public  Instruction.  On  the  basis  of 
the  report  made  out  by  a  high  school  on  this  blank  the  school  is  accorded 
or  refused  recognition  by  the  Department  of  Public  Instruction.  Here 
again  we  have  an  official  blank  filled  out  by  a  responsible  person  and 
sent  to  a  standardizing  agency  which  has  authority. affecting  the  standing 
of  the  school  in  question.  In  this  case  there  is  no  provision  for  checking 
by  various  officials  as  in  the  first  blank.  There  is  a  temptation  not- 
present  in  the  first  blank  for  the  institution  to  magnify  its  merits.  This 
exaggeration,  however,  can  not  be  very  great  because  the  official  filling 
out  the  blank  knows  that  the  opportunity  for  checking  is  always  present 
in  the  State  Superintendent's  office.  This  blank,  like  the  other,  has  the 
merit  of  covering  a  large  number  of  schools — 444  schools  made  reports ; 
94  of  these  were  township  high  schools;  the  remainder  were  city  high 
schools. 

At  this  point  it  should  be  noted  that  all  of  the  high  schools  organ- 
ized under  township  control  are  referred  to  as  "Township  High  Schools," 
although  many  of  them  are  in  fact  metropolitan  high  schools  located  in 
relatively  large  cities.  The  remainder  of  the  high  schools  of  the  State 
are  referred  to  as  "City  High  Schools,"  although  many  of  them  are 
country  or  village  schools  perhaps  having  only  two  or  three  teachers  and 
a  score  or  more  of  students. 

Information  which  can  be  used  for  comparative  purposes  was 
collectprl  by  the  Xorth  Central  Association  of  Colleges  and  Secondary 
Schools  upon  blanks  filled  out  e#rly  in  the  school  year  of  1913-14.  This 
body  of  material,  covering  all  of  the  schools  of  the  North  Central  Asso- 
ciation, was  tabulated  and  interpreted  by  Mr.  George  S.  Counts,  and  his 
results  together  with  the  blank  were  published  by  the  United  States 
Bureau  of  Education  in  Bulletin  Xo.  6,  Series  1915,  under  the  title, 


19 

"A  Study  of  Colleges  and  Secondary  Schools  in  the  North  Central 
Association."  For  the  purposes  of  this  study  the  original  material  was 
made  available.  It  has  been  worked  over  in  a  number  of  cases  into  a 
form  which  is  appropriate  for  this  report  but  which  was  not  necessary  in 
Mr.  Counts'  first  report.  Thirty-nine  township  high  schools  in  the  State 
of  Illinois  were  included  in  the  material  collected  by  the  North  Central 
Association.  There  are  some  tables  in  the  present  investigation  which 
compare  this  group  of  township  high  schools  with  the  other  high  schools 
in  the  State  of  Illinois  which  are  members  of  the  North  Central  Asso- 
ciation, and  also  with  all  the  high  schools  in  the  North  Central  Asso- 
ciation territory.  The  value  of  this  is  apparent,  as  it  shows  the  standing 
of  the  township  high  schools  as  compared  with  two  well-standardized 
groups. 

There  were  certain  items  of  information  about  township  high* 
schools  which  could  not  be  secured  from  any  of  the  sources  enumerated, 
therefore,  a  questionnaire  was  sent  out  to  secure  this  inform'ation.  The 
questionnaire  is  as  follows : 

To  Principals  of  Township  High  Schools: 

History  of  the  establishment  of  township  high  school  by  

principal. 

NOTE. — If  possible,  fill  in  the  answer  to  every  question  but  do  not  hesitate 
to  return  the  blank  if  it  is  possible  to  answer  only  a  portion  of  the  questions. 

1.  How   long  did  the  agitation   last  between   the  first  proposition  of  the 

township  high  school  and  its  final  establishment? 

Date  of  establishment 

What  would  you  say  of  the  opposition  to  the  establishment  of  the  high 

school?    

2.  Is  there  any  opposition  to  it  as  an  institution  at  present? 

Would  people  be  likely  to  vote  it  down  now? 

3.  How  many  times  was  the  proposition  of  its  establishment  defeated,  if 

at  all? 

4.  What  was  the  size  of  the  first  bond  issue?    $ Was  more  than  one 

attempt  made  before  the  bond  issue  was  allowed?    Date 

Give  dates  and  amounts  of  succeeding  bond  issues 

5.  What  was  the  rate  of  taxation  for  educational  purposes  the  first  year  of 

the  school's   history?      For  building  purposes The 

assessed  valuation 

6.  How  many  pupils  the  first  year?     Teachers 

7.  How  many  pupils  the  -filth  year?     Teachers .' 

8.  What  high  school  facilities  existed  in  the  township  before  the  organiza- 

tion of  the  township  high  school?     

9.  How  many  pupils  at  present7     Teachers 

10.  If  possible,  send  any  printed  historical  sketch  of  your  school  which  may 

be  available.    If  no  sketch  is  in  existence,  any  historical  material  per- 
taining to  your  school  will  be  greatly  appreciated. 

Of  the  pupils  coming  to  your  high  school  what  number  come  from 
elementary  schools  of  the  varying  sizes  indicated: 

Number  of  teachers.  Number  of  pupils. 

Single-teacher  schools 

Schools  of  2  to  5  teachers 

Schools  of  6  to  10  teachers 

Schools  of  over  10  teachers 

Schools  not  identified 

Total  high  school  enrollment 

NOTE. — The  item  "Schools  Not  Identified"  is  put  in  to  include  those 
pupils  (many  moving  from  a  distance)  the  size  of  whose  schools  can  not  be 
learned. 


20 

EXPLANATION. 

In  filling  out  the  table  shown  above,  it  is  desired  that  all  the  pupils 
coming  from  single-teacher  schools  be  listed  together,  e.  g.,  there  may  be 
two  students  coming  from  one,  three  from  another,  four  from  another.  The 
total  would  be  nine.  Similarly  fill  out  the  other  blank  spaces.  Now  there 
may  be  two  schools  having  from  2  to  5  teachers  and  two  schools  having 
from  6  to  10  teachers,  all  graduating  8th  grade  pupils.  List  together  all  the 
pupils  coming  from  all  the  schools  having  from  2  to  5  teachers,  no  matter 
where  the  schools  are  located,  whether  in  the  same  district  or  in  several 
districts. 

Return  to 

PRINCIPAL  L.  W.  SMITH, 
Thornton  Township  High  School^.  Harvey,  III. 

In  the  questionnaire  shown  above  it  will  be  noted  that  most  of  the 
information  called  for  relates  to  establishment  of  township  high  schools. 
Other  supplementary  information  is  sought  as  to  the  growth  of  these 
schools  and  the  size  of  the  elementary  schools  from  which  the  pupils  are 
recruited. 

In  addition  to  these  documents  various  incidental  types  of 
information  were  found  on  file  in  the  State  Superintendent's  office,  and 
through  the  helpful  cooperation  of  that  office  some  special  information 
was  secured  for  the  purposes  of  this  study.  This  is  particularly  true  of 
some  of  the  materials  employed  in  making  up  the  financial  tables. 

Through  the  courtesy  of  Prof.  H.  A.  Hollister  of  the  University  of 
Illinois  the  Freshman  records  of  over  2,300  students  were  sent  to  me. 
These  records  I  have  compiled  and  discussed  in  Chapter  X  of  the  present 
study. 

So  far  as  possible  a  uniform  method  of  tabulation  has  been  followed 
throughout  all  the  chapters.  The  purpose  of  this  uniformity  is  to 
facilitate  comparison. 

As  noted  above,  the  high  schools  are  classed  into  two  general 
divisions — city  high  schools  and  township  high  schools.  These  are  again 
classified  as  to  size : 

Class  A,  high  schools  having      1  to  100  pupils. 

Class  B,  high  schools  having  101  to  200  pupils. 

Class  C,  high  schools  having  201  to  300  pupils. 

Class  D,  high  schools  having  301  to  500  pupils. 

Class  E,  high  schools  having  501  and  over. 

In  one  or  two  instances  a  special  Class  F  appears.  In  such  cases 
Class  E  must  be  redefined  as  referring  to  schools  of  501  to  1,000,  and 
Class  F  then  includes  schools  of  1,001  and  over. 

The  plan  on  which  nearly  all  the  tables  are  arranged  will  be  under- 
stood through  an  examination  of  Table  I,  which  gives  the  enrollments  of 
the  schools  included  in  this  report.  The  table  is  shown  at  this  point  as 
a  forecast  of  the  method  of  tabulation  throughout  the  study. 

The  grouping  of  the  schools  according  to  the  classes  based  upon 
their  enrollment  is  shown  at  the  top  of  the  table  as  "A,"  "B,"  "C."  For 
example,  Class  A  includes  those  schools  having  an  enrollment  of  1-100 
pupils;  Class  B,  an  enrollment  of  101-200,  etc.  Each  class  has  two 
vertical  columns  under  it,  one  for  city  high  schools  and  the  other  for 
township  high  schools.  The  information  which  it  is  sought  to  display  is 


21 


rtdd 


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§ 


«  *  s 

t--  t^  I-H  o  Is*  c*5  • 

sssssS- 


CO  »C01 


eW 


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'rt 


M 


I  $ 

|   a^' 

»  |  : 

a 


fe     :  :  :-2-E-££ 
^     :  :  :£^8 


shown  at  the  left  of  the  table.  In  this  case  it  is  the  enrollment  which  is 
shown  in  Groups  1-100,  101-200,  etc. 

In  some  of  the  tables  in  the  study  the  grouping  of  the  schools  is 
shown  at  the  left,  and  the  information  which  it  is  sought  to  display  is 
indicated  at  the  top.  These  two  ways  of  setting  up  the  tables  are  made 
necessary  by  considerations  of  space  and  ease  of  reading.  Otherwise  the 
tables  might  be  made  uniform  in  style  throughout.  They  are  uniform 
in  method. 

Beginning  the  column  of  figures  under  the  caption  "Number  of 
Schools,"  there  are  252  city  high  schools  having  an  enrollment  of  1  to 
100,  there  are  46  township  high  schools  having  an  enrollment  of  1  to  100, 
there  are  68  city  high  schools  having  an  enrollment  of  101  to  200, 
22  township  high  schools  having  an  enrollment  of  101  to  200,  and 
so  forth.  Under  the  proper  heading  the  total  enrollment  of  all  of  the 
high  schools  of  the  various  classes  is  shown.  For  example,  among  schools 
having  an  enrollment  of  1  to  100  there  are  12,908  pupils  in  the  city  high 
schools,  there  are  2,538  in  the  township  high  schools,  and  going  down 
the  column,  there  are  3,997  students  in  the  city  high  schools  having  an 
enrollment  of  301  to  500,  there  are  4,836  pupils  in  the  township  high 
schools  having  an  enrollment  of  301  to  500.  The  median  number  of 
pupils  enrolled  in  each  class  is  shown.  In  this  table  also  are  shown  the 
1st  quartile  and  the  3d  quartile  in  each  of  the  sub-classes,  and  the 
quartile  deviation.  It  will  be  noted,  however,  that  the  median  in  the 
township  high  schools  is  higher  than  in  the  city  high  schools  in  every 
case  except  in  the  case  of  Class  C.  This  is  an  important  fact  which 
should  be  remembered  in  connection  with  many  other  tables  in  the  study. 
This  fact  is  shown  specifically  in  the  column  marked  "Median  Excess." 
For  example,  the  median  of  the  township  high  schools  in  Class  A  is  in 
excess  of  the  median  of  the  city  high  schools  by  an  amount  of  13.7  per 
cent.  Now,  this  is  a  very  important  item  in  certain  tables.-  For 
example,  if  it  costs  more  for  any  particular  feature  in  the  township 
high  schools  than  in  the  city  high  schools  this  increase  in  the  cost  of 
instruction  is  not  significant  unless  the  excess  of  cost  of  instruction 
amounts  to  more  than  13.7  per  cent.  This  has  been  checked  up  and 
its  influence  on  the  findings  is  negligible.  This  would  be  true  in  such 
considerations  as  cost  of  building,  cost  of  operation  of  the  plant,  cost 
of  instruction,  number  of  teaching  positions,  and  any  other  considera- 
tions where  quantity  is  the  primary  consideration.  It  would  have  no 
bearing  in  a  table  which  indicated  the  relative  efficiency  of  the  various 
groups  of  high  schools  in  college,  for  example. 

It  is  not  the  purpose  in  introducing  the  table  at  this  point  to 
discuss  matters  of  enrollment;  it  is  merely  introduced  to  show  the 
method  of  tabulation.  The  enrollment  itself  is  discussed  in  Chapter 
IX,  which  is  devoted  entirely  to  that  subject. 

An  explanation  of  the  terms  used  in  the  tables  is  as  follows :  The 
median  is  the  middle  number  in  any  series  of  numbers.  For  example, 
in  Figure  1  the  individuals  in  the  series  of  25  numbers  are  represented  by 
small  projections  at  the  bottom  of  the  bar,  and  the  median  is  number  13. 


23 
f//tsr  Q&A*r/L£  TI        MED/AN  /j  — ^  THIRD  QVART/LE  19-^ 


Figure  1. 

The  1st  quartile  is  that  number  in  the  series  which  enumerates  the 
first  fourth  of  the  series.  This  is  number  7  in  the  series  represented  in 
Figure  1.  It  is  not  the  quantity  one-fourth,  but  the  point  one-fourth 
the  way  up  the  series.  The  third  quartile  is  that  number  in  the  series 
which  enumerates  three-fourths  of  the  series.  It  is  not  the  quantity, 
but  the  point  three  fourths  of  the  way  up  the  series.  In  the  series 
represented  in  Figure  1  it  is  19. 

The  median  is  selected  as  representing  the  group  most  perfectly 
since  there  are  as  many  cases  above  it  as  below  it.  For  example,  if  the 
median  cost  of  buildings  in  a  certain  group  of  schools  is  $50,000,  that 
represents  the  situation  better  than  the  average  because  the  average  is 
affected  too  strongly  by  a  few  schools  which  spend  an  excessively  small 
or  an  excessively  large  amount  for  this  purpose. 

The  difference  between  the  first  and  third  quartiles  is  approximately 
the  "middle  50  per  cent."  For  example,  as  regards  investment  in  school 
property  in  township  high  schools  of  Class  C  in  Table  II  the  1st  quartile 
is  $56,000  and  the  3d  quartile  is  $100,000.  To  state  that  the  "middle 
50  per  cent"  of  this  group  of  schools  invests  from  $56,000  to  $100,000, 
and  their  median  expenditure  is  $75,000,  gives  a  very  definite  idea  of 
their  practice  in  this  regard.  In  Figure  1  this  is  shown  by  the  black% 
portion  of  the  column.  Seven  is  the  first  quartile  and  19  the  third 
quartile.  The  difference  between  7  and  19  is  approximately  the  "middle 
50  per  cent."  The  "middle  50  per  cent"  in  any  factor  under  discussion 
provides  a  very  excellent  standard  of  comparison. 

The  quartile  deviation  is  found  by  dividing  the  difference  between 
the  first  quartile  and  the  third  quartile  by  two.  It  shows  how  far  the 
"middle  50  per  cent"  varies  from  the  median  and  is  a  very  important 
measure  of  uniformity  within  a  group. 


CHAPTER  II. 


THE  CONSTITUTION  OF  THE  TOWNSHIP  HIGH  SCHOOLS. 

The  first  township  high  school  organized  in  the  State  of  Illinois 
was  that  of  Princeton  in  1867.1  The  city  and  environs  of  Princeton 
were  settled  largely  by  old  New  England  stock  with  all  of  the  traditions 
and  customs  of  those  early  states.  Princeton  still  retained  the  town 
meeting  form  of  community  management.  In  addition  to  this  it  had 
the  tradition  that  a  secondary  school,  in  fact  any  school,  was  a  com- 
munity matter.  There  was  no  academy  or  secondary  school  of  any 
kind  in  their  midst,  and  the  first  proposal  for  the  establishment  of  a 
high  school  which  would  serve  community  needs  came  from  the  pro- 
gressive editor  of  the  Bureau  County  Kepublican,  John  W.  Bailey,  in 
an  editorial  published  on  March  1,  1866,  entitled  "The  School  Question/3 
The  editorial  commanded  attention  immediately  in  the  community,  and 
the  following  week  a  contributed  article  by  John  H.  Bryant  (the  poet's 
brother)  appeared  under  date  of  March  8,  1866.  Bryant  supported  very 
emphatically  the  editorial  of  the  preceding  week  and  said,  "I  like  the 
idea  of  a  high  school  for  the  whole  township."  Toward  the  close  of  his 
article  he  assumed  a  position  with  reference  to  it  which  should  be  that 
of  every  American  citizen  when  questions  of  education  are  involved. 
He  said,  "I  have  no  children  to  send  to  such  a  school,  but  I  feel  never- 
theless that  I  have  an  interest  in  and  advantage  to  gain  by  improvements 
of  this  kind."  Since  the  proposal  was  in  the  nature  of  an  innovation, 
the  advice  of  the  State  Superintendent,  Newton  Bateman,  was  sought. 
He  was  broadminded  and  foresighted  on  this  subject.  He  sent  a  letter 
approving  the  proposal  and  encouraged  the  people  of  Princeton  by 
saying,  "It  will  give  you  an  admirable  school  system,  and  you  will  soon 
have,  I  am  confident,  the  warm  support  of  all  the  friends  of  education 
in  the  township."  A  town  meeting  was  held.  It  will  be  understood  that 
this  town  meeting  was  made  up  of  the  citizens  of  Princeton  and  its 
vicinity  and  was  dominated  by  such  men  as  the  editor  of  the  Bureau 
County  Republican,  the  two  brothers  of  William  Cullen  Bryant,  the 
Lovejoys,  and  others  of  like  educational  ideals  and  refinement.  This 
town  meeting  passed  a  resolution,  presented  by  Mr.  D.  G.  Paddock,  as 
follows : 

"WHEREAS,    It   has   become    evident   that   there   exists   a   necessity   for 
superior  facilities  for  education  in  this  town;  and, 

i  Facts  regarding  the  organization  of  the  Princeton  Township  High  School  herein  reported  were 
furnished  in  an  article  in  School  and  Home  Education  in  February,  1916,  entitled,  "The  First  Town- 
ship High  School  in  Illinois."  This  was  supplemented  by  additional  information  provided  by  Mr. 
H.  S.  Magill,  superintendent  of  schools  of  Springfield,  111.,  formerly  principal  of  Princeton  Township 
High  School,  and  by  Mr.  W.  R.  Spurrier,  at  present  principal  of  that  high  school. 


25 

"WPIEREAS,  Hon.  Newton  Bateman,  Superintendent  of  Public  Instruction, 
has  decided  that  the  trustees  of  each  township  have  power  to  consolidate 
the  districts  of  the  township  for  high  school  purposes;  therefore, 

"Resolved,  That  the  legal  voters  of  the  township  are  in  favor  of  the 
establishment  of  a  high  school  in  the  township  of  Princeton  at  as  early  a 
date  as  the  same  may  be  obtained;  and  that  it  is  the  sense  of  the  town 
meeting  that  the  trustees  of  schools  of  this  township  be  instructed  to  take 
immediate  steps  to  establish  such  high  school  and  to  devise  and  carry  out 
the  appropriate  legal  measures  necessary  for  such  purpose. 

"Resolved,  That  a  committee  of  seven  be  appointed  for  the  purpose  of 
obtaining  an  act  of  the  legislators  of  the  State  to  render  effectual  the  object 
expressed  in  the  above  resolution." 

This  resolution  was  carried  unanimously,  and  the  following  persons 
were  appointed  on  the  committee :  Eev.  F.  F.  Bascom,  J.  T.  Thompson, 
J.  Chritzman,  S.  G.  Paddock,  W.  C.  Stacey,  J.  H.  Bryant,  J.  V. 
Thompson. 

In  due  time  the  township  voted  for  trustees;  on  the  selection  of  a 
proper  site,  and  for  the  authorization  of  borrowing  the  necessary  money 
with  which  to  build  a  suitable  building.  The  number  of  votes  cast  was 
546,  Bascom,  Bryant  and  Chritzman  being  chosen  almost  unanimously 
as  trustees;  the  site  was  selected;  fhe  loan  authorized.  The  Illinois 
Legislature  at  the  next  session  in  February,  1867,  passed  the  law  legal- 
izing such  schools.  The  text  of  this  law  or  rather  special  charter  for 
the  Princeton  Township  High  School  is  printed  as  Appendix  A.  After 
this  law  was  passed,  the  necessary  loan  was  secured  in  the  immediate 
neighborhood,  and  the  first  township  high  school  was  opened  in  Prince- 
ton in  September,  1867. 

Henry  L.  Boltwood  was  called  from  Griggsville,  111.,  to  the  prin- 
cipalship  of  the  new  school — a  most  fortunate  choice.  Few,  if  any,  men 
in  Illinois  have  exerted  a  wider  influence  in  secondary  education  than 
the  beloved  principal  of  Princeton.  As  new  township  high  schools  were 
organized  he  was  called  to  initiate  their  work.  He  was  successively 
principal  of  Princeton,  Ottawa  and  Evanston.  Streator  was  the  second 
township  high  school  to  be  organized.  He  did  not  organize  Streator.  He 
was  thus  principal  of  three  of  the  first  four  township  high  schools  in 
the  State. 

A  few  sentences  taken  from  the  Princeton  Catalogue  of  1875  are 
illustrative  of  the  conditions  in  that  school  in  its  early  years.  "The 
school  building  complete  cost  about  $60,000,  and  will  accommodate  500 
pupils.  The  grounds,  containing  about  nine  acres,  are  tastefully  laid 
out,  affording  a  large  playground  in  the  rear  and  an  ornamental  ground 
in  front. 

"The  school  was  opened  in  September,  1867,  under  charge  of  the 
present  principal,  assisted  by  three  ladies.  At  the  beginning  138  pupils 
were  admitted,  9  of  whom  were  from  abroad.  Two  classes  were  organ- 
ized, a  Junior  and  a  Second  Junior.  The  average  age  of  the  pupils 
admitted  was  16%  years.  During  the  year  174  different  pupils  were 
enrolled.  The  tuition  received  was  $250.00." 


"The  plan  of  work  requires  three  full  recitations  daily.  An  hour 
is  usually  allotted  to  each  recitation." 

The  organization  of  the  school  in  Princeton  and  its  immediate 
success  resulted  in  a  general  law  authorizing  the  organization  of  town- 
ship high  schools.  This  general  law  was  enacted  in  1872  and  is  printed 
herewith  as  Appendix  B. 

The  Township  High  School  Act  passed  through  the  same  period 
of  amendment  as  the  remainder  of  the  school  laws  of  the  State  until  the 
General  Eevision  of  1909. 

This  general  township  high  school  law  is  incorporated  in  that 
codification  (1909)  of  the  school  laws  in  sections  85  to  97  inclusive. 
During  the  period  from  1872  to  1909  the  amendments  made  to  the 
Township  High  School  Law  were  often  for  the  purpose  of  giving  wider 
latitude  in  the  organization  of  high  school  districts.  For  example,  the 
provision  that  a  township  high  school  district  may  be  composed  of  two 
or  more  school  districts  is  a  case  in  point.  There  are  several  others  of 
similar  character. 

Another  township  high  school  law  was  passed  in  1905,  because  of  the 
fact  that  the  general  law  provided  that  high  schools  could  be  organized 
only  under  certain  conditions,  and  it  was  for  the  purpose  of  making 
opportunity  for  the  organizing  of  township  high  schools  more  elastic 
that  it  was  enacted.  Under  this  law,  however,  only  two  township  high 
schools  were  organized,  namely,  Waukegan  and  Collins ville.  It  wiJl 
be  seen  by  an  examination  of  the  law  itself,  which  is  published  as 
Appendix  C,  that  its  application  is  also  limited. 

In  response  to  a  widespread  demand  for  still  more  elasticity  in  the 
formation  of  township  high  school  districts  the  law  of  1911  was  passed. 
Because  of  faulty  legal  technique  the  law  -of  1911  was  declared  uncon- 
stitutional by  the  State  Supreme  Court  in  October,  1916.  The  court 
legalized  the  high  schools  already  organized  under  it  by  declaring  that 
they  would  be  classed  as  de  facto  high  schools.  It  is  expected  that  at 
the  present  session  of  the  Legislature  a  law  will  be  passed  including  aJl 
the  remaining  territory  of  the  State  in  an  inclusive  Township  High 
School  Law. 

It  will  thus  be  seen  that  there  are  four  pieces  of  legislation 
authorizing  township  high  schools  in  Illinois:  The  Princeton  Charter 
of  1867;  the  General  Township  High  School  Law  of  1872,  which  was 
from  time  to  time  amended  and  finally  included  in  the  General  School 
Law  ol'  1909;  the  law  of  1905,  and  the  law  of  1911.  These  four  pieces 
of  legislation  are  reproduced  in  the  appendices. 

The  several  township  high  school  laws  are  very  similar  in  their  pro- 
visions for  the  establishment  of  a  township  high  school  as  distinguished 
from  the  operation  of  such  a  school  after  its  establishment.  In  every  case 
they  provide  that  a  petition  for  the  organization  of  such  a  school  must  be 
signed  by  fifty  legal  voters  in  the  territory  which  is  to  be  included  in  the 
organization.  In  the  general  law  this  petition  is  made  to  the  township 
treasurer,  and  such  a  petition  is  presented  to  the  school  trustees  who  arc- 
required  to  call  an  election  to  determine  whether  the  township  high 
school  shall  be  organized.  In  the  law  of  1905  and  also  in  that  of  1911 
the  petition  is  made  out  to  the  county  superintendent,  and  he  orders  the 


27 

trustees  of  schools  to  conduct  this  election.  For  detailed  information  ai 
to  this  organization  see  the  laws  themselves  in  the  appendices. 

As  pointed  out  in  an  earlier  paragraph,  there  are  four  different 
types  of  organization  possible  under  the  four  laws.  Under  the  provisions 
of  the  General  Township  High  School  Law  the  board  of  education  con- 
sists of  five  members,  elected  for  a  period  of  three  years  each.  The  board 
elects  its  president  from  its  own  number,  and  may  elect  a  secretary  from 
outside  its  membership.  Under  the  provisions  of  the  act  of  1911  the 
board  is  composed  of  six  members  and  a  president.  The  president  is 
elected  annually,  and  the  members  for  a  period  of  three  years  each. 
Under  the  act  of  1905  the  membership  of  the  board  of  education  is  de- 
termined by  the  proportion  of  the  population  in  the  various  districts 
under  twenty-one  years  of  age.  The  members  of  this  high  school  board 
are  elected  by  the  boards  of  education  or  boards  of  directors  in  the  sub- 
sidiary school  districts.  The  board  organizes  by  electing  one  of  its  own 
members  president,  and  it  may  elect  a  treasurer  and  also  a  clerk  from 
outside  its  own  membership. 

As  to  the  powers  and  duties  of  the  township  high  school  boards  of 
education  under  these  various  acts,  the  provisions  are  very  general  in 
their  nature.  The  general  law  provides  that  the  board  of  education  shall 
have  the  power  of  school  directors,  the  law  of  1911  that  they  shall  have 
the  power  and  duties  of  boards  of  education.  It  is  somewhat  remarkable 
that  the  one  law  provides  that  the  schools  under  it,  some  of  them  having 
over  1,000  students  each  and  located  in  large  cities,  are  to  be  governed 
by  the  same  regulations  as  one-room  country  schools,  and  that  the  other 
makes  applicable  to  schools  under  it  the  rules  devised  for  the  government 
of  large  city  school  systems.  The  law  of  1905  does  not  make  a  definite 
statement  as  to  the  powers  and  duties  of  boards  of  education  but  leaves 
the  matter  for  interpretation  in  the  light  of  the  General  School  Law. 
All  of  these  laws,  except  that  of  1905,  give  the  township  high  school 
boards  of  education  the  same  authority  to  tax  the  districts  under  their 
jurisdiction  as  other  school  boards.  This  taxing  authority  comes  from 
section  189  of  the  General  School  Law  which  provides  that:  "The 
directors  or  the  board  of  education  and  the  authorities  of  such  village  or 
city,  as  the  case  may  be,  shall  be  authorized  to  levy  a  tax  annually  upon 
all  the  taxable  property  of  the  district,  village  or  city,  not  to  exceed  as 
hereinafter  stated  1%  per  cent  for  educational  and  1%  Per  cent  for 
building  purposes  upon  the  valuation  to  be  ascertained  by  the  last  assess- 
ment of  city  and  county  taxes."  On  this  point  the  law  of  1905  provides 
that  the  township  high  schools  which  are  organized  under  this  act  shall 
have  authority  to  levy  one-half  the  amount  determined  upon  for  the 
other  township  high  schools  by  the  General  School  Law. 

In  this  study  we  are  very  definitely  interested  in  the  fact  that  the 
township  high  school  laws  provide  for  school  units  of  larger  area  than 
those  for  elementary  schools.  By  an  examination  of  the  General  Town- 
ship High  School  Law,  specifically  sections  86,  87,  88,  89,  90  and  93,  we 
find  that  this  law  authorizes  eight  different  kinds  of  high  school  districts : 

1.  A  school  township. 

2.  Two  or  more  adjoining  townships. 

3.  Two  or  more  adjoining  school  districts. 


28 

4.  Parts  of  adjoining  townships. 

5.  The  remainder  of  a  township  part  of  which  has  been  organized 
into  a  township  high  school. 

6.  A  school  district  having  a  population  of  2,000  or  more. 

7.  A  city  and  a  township. 

8.  Part  of  a  school  township  divided  by  a  navigable  stream. 

As  noted  above,  this  general  high  school  act  was  not  elastic  enough 
to  provide  for  all  communities.,  hence,  the  act  of  1911  was  passed  so  that 
high  school  districts  might  conform  to  the  natural  boundaries  made 
necessary  by  the  distribution  of  population  and  by  the  conditions  of 
transportation.  The  act  of  1911  authorizes  two  classes  of  high  schools: 

1.  A  school  township  that  has  within  its  borders  a  school  district 
with  a  population  of  1,000  or  more  and  not  exceeding  100,000  inhabit- 
ants, as  provided  by  section  1. 

2.  Any  contiguous  and  compact  territory  whether  in  the  same  or 
different  townships,  as  provided  by  section  6. 

It  will  be  seen  that  section  6  provides  very  specifically  for  a  high 
school  district  based  upon  the  needs  of  the  community  and  the  natural 
limitations  imposed  upon  it  by  its  geographical  situation  and  by  the 
conditions  of  transportation.  As  a  matter  of  fact,  in  the  organization  of 
high  schools  under  this  act  such  territory  has  usually  had  in  it  a  city  or 
village  as  a  pivot  of  the  community.  There  are,  however,  a  number  of 
rural  districts. 

The  territorial  organization  is  also  affected  by  the  conditions  under 
which  the  township  high  school  district  when  once  organized  may  annex 
territory.  Under  the  provisions  of  the  general  law  additional  territory 
may  be  annexed  provided  that  first  5  per  cent  of  the  legal  voters  in  the 
township  high  school  district  and  also  5  per  cent  of  the  legal  voters  in 
the  territory  proposed  for  annexation  petition  for  such  annexation. 
Upon  the  filing  of  such  a  petition  it  is  the  duty  of  the  township  treasurer 
of  the  respective  territories  involved  to  bring  the  matter  before  the  school 
trustees,  who  will  call  an  election  to  vote  for  or  against  such  annexation. 
Both  the  high  school  district  and  the  territory  to  be  annexed  must  vote 
in  favor  of  such  annexation  before  'the  annexation  becomes  valid. 

In  the  act  of  1905  annexation  may  be  accomplished  by  concurrent 
resolution  of  the  township  high  school  board  and  the  boards  of  the  school 
districts  proposed  to  be  annexed.  This  joint  resolution,  however,  must 
be  ratified  by  the  voters  in  the  high  school  district  and  also  in  the  dis- 
trict proposed  to  be  annexed.  Exactly  the  same  provisions  are  incorpo- 
rated in  the  act  of  1911. 

As  to  the  rapidity  with  which  high  schools  have  been  organized 
under  these  various  acts,  it  is  in  point  to  quote  from  a  letter  written 
by  J.  C.  Thompson,  attorney  for  the  State  Department  of  Public  Instruc- 
tion, under  date  of  April  25,  1916,  as  follows: 

"There  are  now  265  township  high  school  districts,  divided  as  follows: 

Special  Charter   (Princeton)    ". 1 

General  School  Law   71 

Act  of  1905    . . . .' 2 

Act  of  1911  191 

Total    .  .   265 


29 

"The  question  'to  establish'  is  now  pending  in  more  than  40  commu- 
nities. 

"The  first  township  high  school  w'as  established  by  virtue  of  a  special 
charter  at  Princeton  in  1867.  The  first  township  high  school,  according  to  the 
General  School  Law,  was  established  at  Streator  in  1875.  The  first  township 
high  school  was  established,  pursuant  to  the  act  of  1905,  at  Waukegan  in 
1905.  The  first  township  high  school  was  established  at  Waynesville,  in 
consequence  of  the  act  of  1911,  in  1911. 

"The  high  school  movement  has  appropriated  a  number  of  smaller 
academies  and  seminaries.  The  Waynesville  Township  High  School  is  con- 
ducted in  the  Waynesville  Academy.  The  Westfield  Township  High  School 
is  conducted  in  the  Westfield  College.  The  Toulon  Township  High  School  is 
conducted  in  the  Toulon  Academy. 

"Township  high  schools  are  now  considered  community  high  schools. 
The  districts  are  formed  of  contiguous  and  compact  territory,  with  a  city 
or  village  as  the  axis  of  the  district.  The  high  school  usually  respond  to  the 
wishes  and  convenience  of  the  several  communities.  At  Ashley  and  East 
Lynn  the  high  school  buildings  have  been  constructed  jointly  with  the 
common  school  district.  At  Thebes,  the  common  school  district  owns  the 
site  and  first  story,  the  high  school  owning  and  occupying  the  second  story 
for  high  school  purposes.  At  Cabery  and  Roberts  the  buildings  are  erected 
together,  or  rather,  side  by  side,  forming  one  structure.  A  number  of  the 
high  school  districts  rent  suitable  rooms  for  high  school  purposes." 

The  chief  characteristics  resulting  from  the  legislation  above  re- 
viewed are  as  follows :  In  the  first  place,  the  board  of  education,  as  in 
all  cases  except  the  two  schools  under  the  provisions  of  the  act  of  1905, 
is  composed  of  a  small  number  of  men — either  five  or  seven  members. 
These  boards  of  education  have  their  attention  concentrated  entirely 
upon  the  problems  of  secondary  education.  They  are  not  distracted 
from  their  task  by  considerations  which  must  influence  boards  who  sur- 
vey the  whole  field  of  education.  Furthermore,  their  funds  can  be  con- 
centrated on  the  single  problem  of  secondary  education,  since  an  in- 
creased rate  of  taxation  is  provided  for  the  benefit  of  high  schools 
coming  under  this  law.  The  ordinary  school  district  in  the  State  of 
Illinois  and  in  other  states  is  provided  with  a  definite  rate  of  taxation 
for  such  districts  whether  or  not  they  make  full  provision  for  the  needs 
of  secondary  education.  When  the  high  school  and  the  elementary  school 
are  separated  under  the  provisions  of  the  township  high  school  acts,  the 
elementary  school  districts  have  authority  to  levy  the  full  rate  of  taxation 
which  any  district  may  levy,  and  use  such  funds.  In  addition  to  this  the 
township  high  schools  which  cover  the  same  territory  have  authority  to 
levy  a  tax  equal  in  amount  to  that  which  may  be  collected  by  any  school 
districts  in  the  State.  The  total  effects  of  these  provisions  in  taxation 
are  to  double  the  funds  available  for  educational  purposes  and  to  cen- 
tralize the  expenditure  of  the  funds  provided  by  the  township  high 
school  upon  the  development  of  high  schools. 

In  view  of  the  fact  that  secondary  education  in  the  last  half  century, 
particularly  in  the  last  decade,  has  expanded  enormously  in  the  number 
of  pupils  involved  and  in  the  scope  of  the  instruction  provided,  as  well 
as  in  the  variety  and  volume  of  equipment,  questions  of  revenue  have 
become  acute.  In  the  ordinary  district  in  Illinois  revenues  are  exactly 
the  same  as  those  provided  when  the  school  system  was  immeasurably 
simpler.  Under  the  township  high  school  acts  districts  can  secure  enough 
additional  school  money  to  provide  adequately  for  the  high  schools.  In 


30 

addition  to  providing  thus  for  separate  funds  for  elementary  schools  and 
high  schools,  the  township  high  school  forms  a  new  territorial  unit  of 
large  area.  Thus  a  greater  assessed  valuation  is  drawn  upon  for  the 
support  of  a  single  school.  All  the  advantages  of  consolidation  are  thus 
secured. 

Finally  the  township  high  school  acts  give  an  opportunity  through 
the  provision  for  the  larger  unit  for  a  concentration  of  the  students  who 
are  accessible  to  any  center  of  population.  The  advantages  of  this  larger 
organization  are  numerous.  Better  equipment  can  be  had;  better 
teachers  can  be  employed;  and  the  whole  community  can  be  served 
through  the  organization  of  a  community  unit. 

There  are  also  some  marked  disadvantages  resulting  from  this  type 
of  school  organization  which  should  be  noted.  It  breaks  in  two  what 
should  be  a  single  system.  This  double  control  finds  its  weakness  not  so 
much  in  friction  between  the  two  parts,  since  they  work  quite  as  har- 
moniously as  in  cities  where  the  elementary  and  high  schools  are  parts  of 
the  same  system,  but  in  the  difficulty,  (1)  of  articulating  the  courses  of 
study,  (2)  of  unifying  the  supervision  of  the  progress  of  pupils  through 
the  schools,  and  (3)  of  eliminating  waste  in  providing  equipment  and 
supplies. 

Care  should  be  taken  at  this  point  to  note  that  the  double  control  is 
not  competition,  since  the  division  is  horizontal  and  not  vertical.  The 
two  systems  when  operating  under  this  plan  do  not  parallel  each  other's 
work. 

However,  the  advantages  mentioned  are  so  positive  that  the  diffi- 
culties though  real  have  been  minimized  somewhat  in  the  administration 
of  this  group  of  schools. 

The  township  high  school  type  of  organization  with  its  advantages 
and  disadvantages  presents  a  very  desirable  phase  in  the  evolution  of 
education  in  Illinois.  A  more  complete  discussion  of  these  matters  is 
taken  up  in  a  later  chapter. 

Experience  has  proved  as  a  result  of  these  various  enactments  that 
no  artificial  political  boundary  lines  should  govern  the  metes  and  bounds 
of  a  township  high  school  district.  They  should  be  determined  entirely 
by  the  distribution  of  population,  by  the  configuration  of  local  geography 
and  by  the  conditions  of  transportation.  It  is  this  feature  of  the  town- 
ship high  school  together  with  its  added  opportunity  for  school  revenue 
which  should  be  insisted  upon  and  expanded.  This  matter  will  be 
discussed  in  more  detail  in  a  later  chapter. 


31 


CHAPTER  HI. 


THE  PLANT. 

SITES  AND  BUILDINGS. 

In  recent  years  the  high  school  building  has  become  in  many 
communities  the  object  of  great  civic  pride.  This  is  due  to  the  fact  that 
more  and  more  the  American  people  are  devoting  themselves  to  the 
highest  ideals  of  education.  It  is  also  due  to  the  fact  that  upon  no  other 
institution  is  it  quite  so  fitting  to  bestow  its  complete  affection.  Nearly 
every  other  institution  appeals  to  a  part  of  the  community  and  not  to  all 
of  it.  Because  of  this  fact  the  people  often  vote  taxation  upon  them- 
selves to  embellish  and  decorate  the  building  and  grounds.  Further 
than  this,  the  rapid  development  of  educational  demands  and  the  great 
variation  in  the  kinds  of  work  done  in  the  high  school  have  made  neces- 
sary a  large  increase  in  the  expenditures  upon  the  building  and  site  of  a 
modern  high  school.  For  these  reasons  a  building  movement  represents 
in  a  sense  a  crisis  in  a  community.  It  is  the  subject  of  long  and  vigorous 
discussion.  Sometimes  the  agitation  results  in  bitterness  and  in  con- 
tention. Disagreements  seldom  come  from  a  discussion  of  the  advis- 
ability of  having  a  high  school,  but  they  arise  out  of  differences  of 
opinion  as  to  its  extent  and  its  cost.  The  reason  for  this  is  that  there 
are  no  adequate  standards  which  will  exactly  determine  the  amount  of 
money  that  should  be  expended  for  a  high  school  of  a  given  size.  There 
are  not  even  comparative  standards  published  in  such  form  that  they 
might  be  available  to  high  school  districts  entering  upon  this  greatest 
enterprise  which  it  may  undertake.  For  these  reasons  it  is  all  the  more 
necessary  that  a  study  should  be  made  of  the  high  school  plants  that  are 
now  existing,  with  an  idea  of  discovering  their  extent  but  with  a  distinct 
purpose  to  have  definite  information  in  regard  to  their  cost. 

The  school  corporation  about  to  undertake  a  new  high  school  needs 
all  the  information  it  can  secure  in  setting  the  size  of  its  bond  issue,  in 
determining  the  amounts  that  it  will  spend,  in  deciding  upon  the 
character  of  the  building  and  upon  the  extent  and  quality  of  its  equip- 
ment. It  is  not  sufficient  to  estimate  the  needs  of  a  community  in  this 
respect  by  pointing  to  the  procedure  followed  in  another  community, 
because  of  the  fact  that  another  community  may  have  different  needs,  and 
different  conditions  may  determine  its  policy.  Furthermore  the  cost  of 
construction  in  one  community  is  different  from  that  in  another.  The 
board  of  education  and  its  responsible  agents  in  investigating  this  propo- 
sition should  not  accept  the  statements  of  architects,  contractors  and 
others  who  are  interested  in  the  construction  of  the  building  itself  and  in 
the  selection  of  a  site.  These  questions  should  be  determined,  as  indi- 
cated above,  upon  a  thorough  study  of  the  local  situation  and  an  accurate 


32 

comparison  of  the  needs  of  the  community  in  question  with  the  general 
practices  found  in  communities  covering  a  wide  territory.  For  example. 
Community  A  possesses  a  high  school  having  from  200  to  300  pupils  en- 
rolled, and  it  has  constructed  a  high  school  costing  we  will  say  $100,000. 
Community  B  is  another  community  having  a  high  school  of  similar  size, 
and  has  constructed  a  high  school  costing  $50,000.  Which  procedure  is- 
correct  ?  Has  Community  A  spent  too  much  or  has  Community  B  spent 
too  little?  It  is  obviously  bad  practice  to  follow  the  example  of  any 
particular  community.  If  possible,  it  should  be  determined  what  is  the 
typical  amount  of  money  expended  in  schools  having  the  enrollment 
given.  Even  when  the  typical  expenditure  for  schools  of  a  given  size  ha& 
been  determined,  other  factors  must  be  studied.  For  example,  in  the 
State  of  Illinois  the  cost  of  construction  in  the  northern  part  of  the  State 
is  much  higher  than  in  the  southern  part  of  the  State.  The  cost  of  a 
high  school  plant  in  an  industrial  community  where,  large  demands  are 
made  for  vocational  education,  necessarily  must  be  much  higher  than 
in  a  community  which  has  the  traditional  point  of  view.  If  a  school 
expects  to  give  wide  latitude  in  electives  this  again  legitimately  in- 
creases the  cost  of  construction.  If  the  community  expects  to  prepare 
its  students  for  later  technical"  work  of  various  kinds,  this  is  another 
added  cost.  In  a  word,  the  policy  which  is  here  advocated  is  that  every 
building  enterprise  should  be  preceded  by  a  careful  investigation  of 
the  present  and  prospective  needs  of  the  community.  This  should 
include  as  careful  an  estimate  as  possible  as  to  the  probable  growth 
of  the  school.  This  estimate  of  the  probable  growth  must  be  based  not 
only  upon  the  natural  expectation  in  the  increase  of  population  but  also 
upon  the  present  tendency  in  secondary  education  for  high  schools  to 
grow  much  more  rapidly  in  proportion  to  the  population  than  heretofore. 
It  should  be  noted  in  this  connection  also  that  the  mere  fact  of  the  con- 
struction of  a  modern  high  school  creates  an  added  demand  for  the  work 
which  it  makes  possible.  It  is  the  experience  of  many  communities  that 
as  soon  as  a  well  appointed  high  school  building  is  constructed  it  is 
used  to  capacity.  In  fact,  there  has  been  throughout  the  country  in 
recent  years  deplorable  shortsightedness  in  the  construction  of  high 
school,  buildings  that  are  almost  never  constructed  large  enough.  The 
result  is  that  scores  of  plants  all  over  the  country  have  been  obliged  in 
recent  years  to  make  additions  which  are  not  symmetrical  with  previous 
construction.  It  is  the  purpose  of  the  present  chapter  to  reveal  the 
situation  in  Illinois  as  to  the  capital  investments  in  high  school  plants, 
with  considerable  attention  to  a  comparison  of  the  expenditures 'made 
by  city  high  schools  as  compared  with  township  high  schools,  as  outlined 
in  Chapter  I. 

In  Table  II  is  exhibited  the  amount  of  money  invested  in  sites  and 
buildings  in  156  high  schools  in  the  State  of  Illinois. 

In  this  table  the  number  of  high  schools  having  investment  of 
various  amounts  are  grouped.  The  first  group  shows  those  high  schools 
expending  $1,000  to  $5,000,  the  second  group  those  from  $5,001  to 
$10.000,  and  so  on.  Reading  down  the  left  hand  side  of  the  table  in  the 
first  vertical  column,  the  sizes  of  the  various  classes  of  high  schools  are 
indicated — Class  A  having  an  enrollment  of  1  to  100;  Class  B,  101  to 


33 


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34 

200,  etc.,  as  shown  in  the  table.  The  next  vertical  column  shows  which 
of  the  groups  of  high  schools  are  tabulated,  namely,  city  high  schools 
and  township  high  schools.  The  entire  number  of  high  schools,  both 
city  high  schools  and  township  high  schools,  is  shown  in  the  third 
vertical  column.  For  instance,  in  Class  A  there  are  19  city  high  schools 
and  29  township  high  schools,  making  a  total  of  48  high  schools  alto- 
gether in  Class  A.  Eeading  the  table  from  right  to  left  there  are  5  city 
high  schools  of  Class  A  having  an  investment  of  $1,000  to  $5,000,  G 
having  an  investment  of  $5,001  to  $10,000,  and  so  forth.  There  are 
2  township  high  schools  of  Class  A  having  an  investment  of  $1,000  to 
$5.000,  6  township  high  schools  having  an  investment  of  $5,001  to 
$10,000,  and  so  forth.  There  is  a  total  of  7  high  schools  in  Class  A 
having  an  investment  of  $1,000  to  $5,000,  12  having  an  investment  of 
$5,001  to  $10,000,  and  so  forth.  Going  to  the  bottom  of  the  table  it  is 
noted  that  there  is  a  total  of  81  city  high  schools  and  75  township  high 
schools,  making  a  total  of  156  high  schools  included  in  this  table. 

The  question  may  be  raised  at  once,  how  is  it  possible  even  for  a 
small  high  school  to  have  so  small  an  investment  in  a  building  as  $5,000  ? 
This  is  due  to  the  fact  that  in  many  schools  in  the  State  of  Illinois  the 
high  school  is  conducted  in  a  certain  portion  of  a  building  designed 
primarily  for  elementary  school  purposes,  and  this  capital  investment  in 
the  high  school  building  in  Classes  A  and  B  refers  to  that  proportion  of 
the  investment  which  is  used  for  high  school  purposes  alone.  By  re- 
ferring to  Table  XI  it  will  be  noticed  that  in  city  high  schools  of  Class 
A  89.4  per  cent  of  the  high  schools  have  no  building  of  their  own  but 
depend  upon  the  elementary  schools  for  their  quarters.  A  smaller  per 
cent  of  the  township  high  schools  in  Class  A  (38.3)  are  similarly 
dependent  upon  the  elementary  schools.  In  Class  B  80.8  per  cent  of  the 
high  schools  are  dependent  upon  the  elementary  schools  for  room,  and  15 
per  cent  of  the  township  high  schools  in  this  class  are  similarly  dependent 
upon  the  elementary  schools.  In  Class  C  only  19  per  cent  of  all  the  higli 
schools,  both 'city  and  township,  are  so  dependent.  In  every  case  in 
Class  D  and  E  the  high  schools  have  their  own  buildings. 

By  referring  to  the  horizontal  column  marked  "total"  in  Class  A, 
Table  XXIII,  it  will  be  seen  that  in  Class  A  a  median  of  3  rooms  is  set 
apart  for  the  use  of  the  high  school.  In  Class  B  a  median  of  6  rooms  is 
set  aside  for  the  use  of  the  high  school.  These  facts  account  for  the  few 
cases  of  small  investment  in  high  school  buildings  and  grounds  shown 
particularly  in  Classes  A  and  B. 

Looking  at  the  other  end  of  the  table  it  will  be  noticed  that  some 
high  schools  have  plants  costing  large  sums  of  money.  For  example, 
there  are  6  city  high  schools  and  3  township  high  schools  having  an 
investment  in  sites  and  buildings  of  over  $250,000  each.  There  are  ft 
high  schools  in  the  State  having  an  investment  of  between  $200,000  and' 
$250,000.  This  table  is  so  constructed  as  to  show  the  average  investment 
in  city  high  schools  and  in  township  high  schools  in  each  of  the  various 
sizes  of  high  schools.  It  also  shows  the  medium  investment.  In  addi- 
tion to  this,  the  first  quartile,  the  third  quartile  and  the  quartile  devia- 
tion are  also  shown.  The  purpose  of  this  is  that  anyone  who  is  interested 


35 

in  looking  into  the  capital  investment  in  any  group  of  high  schools  may 
discover  the  characteristic  situation.  For  example,,  it  will  be  noted  that 
in  high  schools  having  an  enrollment  of  between  200  and  300  the  median 
investment  in  sites  and  buildings  is  $60,000 ;  the  first  quartile  is  $45,000 ; 
the  third  quartile  is  $93,500;  the  quartile  deviation  is  $24,250.  If  a 
community  is  on  the  eve  of  a  new  construction  and  if  it  is  a  school  of 
this  size,  these  facts  will  be  very  significant,  and  they  should  be  inter- 
preted in  the  light  of  suggestions  made  above,  that  is,  geographical  loca- 
tion of  the  community  as  regards  its  nearness  to  a  metropolitan  district, 
which  would  increase  its  cost,  since  considerations  of  vocational  educa- 
tion and  wide  electives  would  have  a  bearing.  This  table  shows  that  50 
per  cent  of  the  city  high  schools  of  this  grade  invest  from  $45,000  to 
$93,500  with  a  median  investment  of  $60,000.  It  is  fair  to  assume 
that  if  a  school  expends  less  than  $45,000,  it  is  probably  not  providing 
adequate  facilities.  If  it  is  expending  over  $93,500,  it  is  providing  for 
a  future,  which  is  perfectly  legitimate,  or  it  is  providing  unusually  good 
facilities  in  the  way  of  adequate  preparation  for  vocational  and  special 
education.  The  fact  is  that  about  the  best  range  for  expenditure  for  a 
progressive  high  school,  and  yet  one  that  wants  to  be  conservative,  is  that 
limited  by  the  median  and  the  third  quartile,  namely,  $60,000  to 
$93,500. 

The  facts  embodied  in  Table  II  are  displayed  in  graphic  form  in 
Figure  2. 

On  the  left  hand  side  of  this  figure  is  a  scale  beginning  with  $25,000 
and  extending  to  $650,000.  At  the  bottom  of  the  graph  the  schools  of 
various  sizes  are  indicated,  that  is  1  to  100,  101  to  200,  and  so  forth. 

Immediately  above  each  of  these  groups  bars  are  drawn  to  repre- 
sent the  range  of  expenditure  from  the  first  quartile  to  the  third  quartile, 
in  other  words,  approximately  50  per  cent  of  the  cases.  The  hollow  bar 
represents  the  city  high  schools,  the  solid  bar  represents  the  township 
high  schools.  On  each  bar  is  marked  the  median.  The  amount  of  money 
which  the  median  indicates  is  shown  in  the  scale  at  the  right  of  the 
figure.  The  table  shows  and  the  graph  indicates  in  a  very  clear  fashion 
the  increased  cost  for  sites  and  buildings  as  the  size  of  the  school  in- 
creases. For  example,  a  school  having  an  enrollment  of  from  200  to  300 
pupils  typically  expends  twice  as  much  on'  its  buildings  and  grounds 
as  a  school  having  from  100  to  200  pupils — $60,000  in  the  former  case 
and  $30,000  in  the  latter  case.  This  median  expenditure  goes  on  up  and 
is  $100,000  in  the  case  of  city  high  schools  in  Class  D  and  $227,795  in 
the  case  of  Class  E. 

We  started  out  in  this  discussion  with  a  distinct  aim  of  discovering 
the  relative  situation  of  township  high  schools  in  these  various  factors  as 
compared  to  city  high  schools.  In  this  table  and  in  this  graph  it  is  very 
clear  that  the  township  high  schools  have  much  larger  sums  of  money 
invested  than  the  city  high  schools.  The  median  expenditure  of  the 
township  high  school  is  usually  25  per  cent  greater  than  the  city  high 
school.  The  quartile  deviation  in  the  case  of  township  high  schools  is  in 
every  case  larger  than  in  the  case  of  city  high  schools.  This  is  indicative 
of  the  fact  that  the  towjnship  high  schools  vary  in  their  practice  to  a 
much  greater  extent  in  the  respect  of  buildings  and  grounds  than  the 


36 


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I 

Fig.  2. — Value  of  School  Prop- 
erty— Sites  and  JBuildings.  The 
high  schools  are  classified  at  the 
bottom  according  to  the  number 
enrolled.  The  upright  bars  repre- 
sent the  range  of  investment  from 
the  first  quartile  to  the  third  quar- 
tile  ;  the  hollow  bars  represent  the 
city  high  schools  and  the  solid  bars 
the  township  high  schools.  M  rep- 
resents the  median  investment  in 
each  case.  An  equalized  scale  of 
the  amount  invested  is  shown  at 
the  left  and  a  scale  of  the  medians 
at  the  right. 


37 

city  high  schools.  It  indicates  a  tendency  to  build  for  their  own  needs 
more  independently  than  to  take  their  plans  from  the  practices  in  other 
communities.  This  matter  of  the  quartile  deviation  should  be  followed 
very  carefully  throughout  the  remainder  of  this  investigation,  as  it  will 
be  found  to  be  a  distinct  characteristic  of  township  high  schools.  The 
larger  investments  in  the  school  plant  on  the  part  of  township  high 
schools,  as  shown  in  this  table  and  graph,  are  seen  in  even  greater  relief 
in  Classes  B,  C  and  D,  because  of  the  fact  that  in  these  three  classes  the 
number  of  schools  in  each  group  is  relatively  the  same  but  the  amount 
of  money  is  markedly  more  in  the  case  of  township  high  schools  as  com- 
pared with  city  high  schools.  Throughout  this  study  the  median  is  used 
largely  as  the  measure  of  central  tendency.  Very  often,  as  in  this  case 
also,  the  average  is  shown,  and  an  examination  of  the  average  reveals 
exactly  the  same  facts. 

Table  III  is  constructed  in  exactly  the  same  fashion  as  Table  II 
except  that  the  source  for  the  material  comes  from  the  Approval  Blank 
instead  of  frorn.  Form  2. 

It  will  be  noted  that  in  the  smaller  schools  the  figures  are  larger, 
the  medians  are  larger,  the  quartiles  are  larger  in  general;  averages  are 
larger.  This  is  due  to  the  fact  that  the  approval  blank  is  sent  in  by 
high  school  principals  and  superintendents  for  the  purpose  of  securing 
recognition  for  their  high  schools.  This  fact  produces  a  tendency  in 
the  case  of  smaller  schools  in  the  mind  of  the  reporting  officer  to  magnify 
the  amount  of  money  invested  in  the  school.  It  will  be  noted  that  in 
the  larger  schools  the  amounts  of  money  reported  are  no  larger  than  in 
Form  2,  and  in  some  cases  smaller,  because  of  the  fact  that  in  these 
larger  schools  the  reporting  officer  has  no  motive  to  magnify  the  sums 
of  money  invested,  as  his  accrediting  relations  are  in  no  case  endangered. 
Since  the  information  coming  from  Form  2  is  checked  in  various  official 
channels  by  the  township  treasurer  and  by  the  county  superintendent 
before  it  reaches  the  State  Superintendent,  the  figures  are  probably  very 
much  more  accurate.  The  point  in  introducing  Table  III  is  that  it  is 
another  source  of  information,  and,  though  it  has  this  variation  due  to 
the  motive  suggested,  it  reveals  exactly  the  same  situation  as  was  dis- 
closed in  Table  II.  In  other  words,  in  every  respect  it  is  a  confirmation 
of  the  conclusions  reached  in  the  discussion  of  Table  II. 

EQUIPMENT. 

The  plant  is  incomplete  without  adequate  equipment.  Sometimes  a 
community  exhausts  its  financial  resources  in  providing  a  plant  and  has 
not  had  the  foresight  to  plan  for  equipment.  Sometimes  a  bond  issue 
which  is  sold  for  the  definite  purpose  of  providing  a  plant  and  equipment 
is  exhausted  and  has  to  be  replenished  from  current  taxation  in  the  con- 
struction of  a  building  and  the  purchase  of  a  site,  whereas  the  school 
suffers  in  efficiency  when  definite  provisions  are  not  made  for  the  pur- 
chase of  appropriate  equipment. 

By  equipment  we  mean  furniture,  laboratory  apparatus  and  such 
other  material  as  becomes  a  permanent  part  of  the  operation  of  the  school. 
We  do  not  have  reference  to  supplies  such  as  chalk,  paper,  stock  for 


38 


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39 

domestic  science  and  manual  training,  or  other  articles  which  are  con- 
sumed in  the  using.  We  refer  to  those  items  which  become  a  permanent 
feature  of  the  school  and  are  used  year  after  year.  The  amount  of  money 
invested  in  permanent  equipment  in  all  tax-supported  high  schools  in 
the  State  of  Illinois  is  reported  to  the  State  Department  in  Form  2, 
Section  B  of  Question  18.  This  information  is  tabulated  in  Table  IV. 

Here  it  is  shown  that  327  city  high  schools  and  96  township  high 
schools,  making  a  total  of  423,  have  reported  this  item.  The  amount  of 
money  expended  for  equipment  is  arranged  in  groups — $100  to  $250, 
$251  to  $500,  as  shown  at  the  top  of  the  table.  The  left  hand  portion  of 
the  table  is  constructed  in  exactly  the  same  manner  as  Table  III.  It  will 
be  seen  in  this  table  that  there  are  52  city  high  schools  of  Class  A  which 
expend  from  $100  to  $250,  whereas  only  3  township  high  schools  of  this 
class  have  expended  an  amount  so  small.  Note  that  in  Class  B  no  town- 
ship high  school  has  expended  less  than  $1,000  for  equipment.  Three 
city  high  schools  and  5  township  high  schools  have  expended  over  $30,000 
for  equipment.  Various  other  interesting  comparisons  may  be  made  by 
a  study  of  the  table  in  detail.  The  facts  revealed  in  Table  IV  are  shown 
in  graphic  form  in  Figure  3.  Figure  3  is  constructed  in  exactly  the  same 
.  fashion  as  Figure  2. 

By  an  examination  of  the  table  and  by  referring  to  the  graph  it  is 
again  very  evident  that  the  expenditures  for  equipment  increase  very 
rapidly  as  the  size  of  the  school  increases.  This  increase  is  almost 
proportional  to  the  increase  in  the  size  of  the  school  until  we  reach 
Class  D  (that  is,  in  schools  above  300  enrollment)  when  the  increase  in 
expenditure  proceeds  much  more  rapidly  than  the  increase  in  enrollment. 
We  find  a  situation  here  exactly  similar  to  that  in  regard  to  investment 
in  sites  and  buildings,  that  is,  that  the  township  high  schools  have  much 
larger  sums  of  money  invested  than  the  city  high  schools.  Here  again 
the  quartile  deviation  is  larger  in  the  case  of  township  high  schools  in 
every  case,  except  Class  C,  than  in  the  city  high  schools.  This  again 
shows  variation  in  practice  on  the  part  of  the  township  high  school  and 
a  tendency  to  depart  from  the  custom  of  schools  of.  their  corresponding 
sizes. 

The  information  shown  in  Table  V  is  compiled  from  the  Approval 
Blank. 

In  this  table  as  in  Table  III  the  amounts  indicated  are  larger  in 
the  case  of  the  smaller  schools,  that  is,  the  medians,  quartiles  and  averages 
are  all  larger.  This  again  is  ascribed  to  the  tendency  on  the  part  of  the 
reporting  officer  to  magnify  the  amounts  of  money  invested  in  his  equip- 
ment, since  it  is  necessary  for  him  to  make  as  good  a  showing  as  possible 
to  secure  recognition.  I  wish  to  say  in  this  connection  that  this  tendency 
is  probably  due  to  no  intentional  purpose  of  exaggeration.  Here,  as  in 
the  first  case,  larger  schools  do  not  magnify  amounts  of  money  involved ; 
in  fact,  in  some  cases  the  sums  are  reported  smaller.  However,  the  table 
in  general  confirms  the  conclusions  derived  from  a  consideration  of  Table 
IV — that  is,  that  the  expenditures  increase  rapidly  with  the  increase  in 
enrollment,  that  the  larger  sums  of  money  are  spent  by  the  township  high 
schools  for  equipment,  the  quartile  deviation  is  larger  in  the  case  of 
township  high  schools  than  in  city  high  schools  in  every  case. 


40 


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Fig.  3. — Capital  Investment — 
Equipment.  The  high  schools  are 
classified  at  the  bottom  according 
to  the  number  enrolled.  The  up- 
right bars  represent  the  range  of 
investment  from  the  first  quartile 
to  the  third  quartile;  the  hollow 
bars  represent  the  city  high  schools 
and  the  solid  bars  the  township 
high  schools.  M  represents  the 
median  investment  in  each  case. 
An  equalized  scale  of  the  amounts 
invested  is  shown  at  the  left  and 
a  scale  of  the  medians  at  the  right. 


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43 

The  information  shown  in  Table  VI  is  taken  from  Form  2,  and 
represents  the  total  capital  investment,  that  is,  the  entire  amount  of 
money  invested  in  sites,  buildings  and  equipment.  It  is  the  sum  of  the 
amounts  of  money  displayed  in  Table  II  and  Table  IV. 

The  construction  of  the  table  is  exactly  similar  to  the  tables  pre- 
viously canvassed.  There  are  327  city  high  schools  and  96  township 
high  schools,  making  a  total  of  423,  making  this  report.  It  will  be  noted 
that  there  are  14  high  schools  in  the  State  having  a  total  investment  of 
over  one-quarter  of  a  million  dollars  each.  Beginning  with  Class  C  in 
each  group,  as  verified  in  a  later  table,  the  high  schools  pretty  generally 
have  their  own  building,  grounds  and  equipment.  We  note  in  the  city 
high  schools  of  Class  C  that  the  median  expenditure  is  $54,000,  and 
the  middle  50  per  cent  of  this  group  have  invested  from  $31,000  to 
$100,000.  The  township  high  schools  of  this  group  have  a  median 
investment  of  $79,000,  whereas  the  middle  50  per  cent  have  invested 
from  $52,500  to  $100,350.  Every  other  group  examined  in  the  same 
way  will  reveal  the  same  type  of  information.  The  table  confirms  and 
emphasizes  the  facts  shown  in  the  preceding  ones,  as  it  would  neces- 
sarily do  since  it  is  the  sum  of  the  amounts  considered  in  the  former 
cases — that  is,  the  amount  invested  increases  rapidly  with  the  increase 
in  enrollment,  the  township  high  schools  in  all  categories  have  invested 
larger  sums  of  money  than  the  city  high  schools,  that  the  quartile  devi- 
ation is  larger  in  every  group  in  the  township  high  schools  than  in  the 
city  high  schools. 

MAINTENANCE  OF  THE  PLANT. 

After  the  plant  is  constructed  and  the  school  is  in  operation  its 
maintenance  becomes  a  pressing  and  permanent  problem.  Very  often  in 
the  administration  of  schools  there  is  no  consistent  policy  in  this  matter. 
Plans  are  made  in  a  haphazard  manner  at  the  conclusion  of  a  school 
year  or  during  the  vacation  period  for  the  renovation  of  the  plant  in  order 
to  get  it  ready  for  operation  the  following  year.  Very  often  needed  repairs 
are  neglected  and  the  plant  deteriorates.  Again  changes  and  alterations 
are  made  with  no  very  clear  foresight  as  to  the  future  needs  of  the  school. 
Very  often  alterations  are  omitted  which  might  contribute  very  materially 
to  the  success  of  the  school.  Furthermore  there  is  often  negligence  in 
keeping  a  separate  account  for  this  fund  so  that  the  board  and  the  super- 
visory officers  may  have  definite  knowledge  as  to  the  events  of  the  past  in 
this  respect.  It  is  only  by  studying  the  past  history  of  the  local  institu- 
tion and  a  careful  prognosis  of  its  needs  in  the  future  that  the  matter  of 
maintenance  of  the  building  can  be  managed  in  an  efficient  manner.  In 
managing  the  fund  that  will  be  used  for  this  purpose  it  is  necessary  that 
the  school  authorities  have  a  very  clear  idea  as  to  the  items  which  should 
be  charged  against  this  fund.  Supplies  which  are  consumed  in  the  using 
do  not  properly  belong  here.  Permanent  improvements  which  are  in  the 
nature  of  additions  to  the  plant  do  not  belong  here.  Only  those  items  of 
expenditure  which  replace  parts  of  the  building  which  have  been  worn 
out  or  destroyed  should  be  included.  Repairs,  replacement  of  equipment, 
insurance,  etc.,  belong  in  this  fund.  Many  commercial  institutions  reg- 


44 


45 

ularly  charge  off  against  their  buildmg  a  certain  percentage  of  their 
capital  investment  for  depreciation.  Very  often  this  figure  is  set  at 
5  per  cent  of  the  capital  investment,  the  corporation  going  on  the 
assumption  that  the  plant  should  be  completely  replaced  by  this  fund  in 
the  course  of  twenty  years.  It  is  the  custom  in  this  connection  to 
accumulate  a  fund  which  will  be  used  for  maintenance  purposes. 

In  the  administration  of  a  public  high  school  considerations  such  as 
the  foregoing  should  influence  the  practice  of  the  institution.  If  the 
school  authorities  have  studied  the  situation  thoroughly,  as  suggested 
above,  the  past  history  of  the  institution  and  a  well-considered  plan  for 
the  future  will  guide  the  policy.  The  great  need  which  has  heretofore 
been  lacking  to  school  authorities  is  definite  information  as  to  what  other 
institutions  have  been  able  to  do  in  this  respect.  When  an  institution  is 
considering  this  problem  it  would  throw  considerable  light  on  the  sit- 
uation if  the  institution  was  able  to  refer  to  the  practice  of  other  institu- 
tions of  its  rank  and  grade  and  to  know  what  they  were  able  to  do  in 
this  regard.  It  is  with  this  in  mind  that  the  information  provided  in 
Question  45  of  Form  2  was  assembled  and  tabulated.  This  information 
is  shown  in  Table  VII. 

The  various  groups  of  schools  are  arranged  in  this  table  according 
to  the  plan  heretofore  followed.  The  amounts  of  money  involved  are 
grouped  at  the  top  of  the  table  in  sums  as  follows :  $1  to  $100,  $101  to 
$200,  $201  to  $300,  etc.  There  are  shown  in  this  table  the  maintenance 
costs  of  320  city  high  schools  and  81  township  high  schools — a  total  of 
401  high  schools,  a  large  enough  number  on  which  to  base  conclusions 
with  considerable  confidence.  It  will  be  noticed  that  there  are  145  city 
high  schools  of  Class  A  whose  maintenance  cost  is  from  $1  to  $100,  and 
12  township  high  schools  having  a  similar  cost.  In  Classes  A  and  B 
there  are  a  considerable  number  of  high  schools  with  a  very  low  main- 
tenance cost.  This  is  due  to  the  fact  that  many  of  these  high  schools  are 
quartered  in  elementary  school  buildings,  as  is  shown  in  Table  XXIII. 
It  will  be  noticed  also  that  there  are  3  high  schools  in  the  State  which 
have  a  maintenance  cost  of  over  $5,000. 

To  illustrate  the  statement  previously  made  about  finding  in  this 
table  some  information  as  to  the  custom  of  other  high  schools,  we  may 
take  Class  D  as  an  example,  wherein  the  enrollment  is  from  301  to  500. 
It  will  be  noted  that  the  median  maintenance  cost' for  city  high  schools  in 
this  group  is  $800.  The  middle  50  per  cent  of  this  group  of  schools 
expend  from  $237  to  $1,351  annually  in  maintaining  the  buildmg.  The 
median  maintenance  cost  of  the  township  high  schools  of  this  group  is 
$1,755.  In  this  group  the  middle  50  per  cent  expend  from  $792  to  $3,465 
annually.  A  school  then  that  expends  less  than  $237  is  very  likely 
miserly  in  its  policy  in  this  respect.  If  it  expends  more  than  $3,465 
annually,  it  is  very  likely  that  there  is  some  unusual  and  extraordinary 
expense  involved.  A  larger  expenditure  than  this  sum  would  demand 
a  special  explanation,  which  could  often  be  justified.  A  progressive 
institution  could  very  well  feel  then  that  it  was  neither  miserly  nor 
extravagant  if  its  annual  maintenance  cost  lay  between  the  figures  $1,755 
and  $3,465,  i.  e.,  between  the  median  and  third  quartile  of  this  group. 
The  facts  given  in  Table  VII  are  shown  graphically  in  Figure  4. 


46 


i 


~ 

I 


11       SI       c?i 


SI 


32          88          SS 

II 


§  a 


i-l     .    I   .-(        i-l  CN    I   CO 


iiU 


ooo'zt-ios'i* 


oos'i$-ioo'it 


O00'l$-I06$ 


3^         5 


0061-108$ 


OOSf-IOit 


co    •  I  co     coi-H 


l-H  i-<     I    CN 


^H        CN      •     I    CN        OCN 


OOZ$-I09$ 


009$-TOS$ 


^H      .    I   rt        10  Tt<    I   05 


OOSI-IOH 


JOCO     |   00 


OOi-H     I    Ol         i-l      •     I    i-l 


co 


OOI$-T$ 


ico      "?      «0' 


.HH         4J 

w^.    ° 


OH 


i  WM   I 
^  -^  1 

•§    OH     g 

H    I!    ° 

HH 


30 
§ 


47 


In  this  graph  the  increase  in  the  maintenance  cost  as  the  enrollment 
increases  is  very  marked.  This  graph  is  constructed  on  the  same  prin- 
ciples as  the  others.  An  equalizing  scale  lies  to  the  left  of  the  figure  and 
a  scale  of  medians  on  the  right.  The  hollow  bars  represent  the  city  high 
schools  and  the  solid  bars  the  township  high  schools.  In  every  category 
the  township  high  schools  surpass  the  city  high  schools  in  maintenance 


Fig.  4 — Maintenance  of 
Plant.  The  high  schools  are 
classified  at  the  bottom  accord- 
ing to  the  number  enrolled.  The 
\ipright  bars  represent  the  sums 
expended  for  maintenance  an- 
nually from  the  first  quartile  to 
the  third  quartile ;  the  hollow 
bars  represent  the  city  high 
schools  and  the  solid  bars  the 
township  high  schools.  M  rep- 
resents the  median  annual  ex- 
penditure in  each  oase.  An 
equalized  scale  of  the  annual 
expenditure  is  shown  at  the  left 
and  a  scale  of  the  medians  at  the 
right. 


4-OOQ 


38oo 


3600 


3400 


3200 


3000 


Z&oo 


2.600 


2400 


ZZOO 


£000 


1800 


M     2430 


J755; 
")709 


j8oo 
664 


500 
272 


75 


I          )0l        201       30!        501 

TO        TO         TO        To         AND 

100     200      300     500      OVER 


cost.  By  referring  again  to  the  table  it  is  noted  that  the  quartile  devi- 
ation in  the  case  of  the  township  high  schools  is  greater  than  that  of  the 
city  high  schools.  Here  again  is  shown  the  variation  of  the  township 
high  schools  from  the  practice  of  city  high  schools  of  their  own  grade 
and  group. 


48 

OPERATION  OF  PLANT. 

The  next  logical  topic  in  the  consideration  of  the  plant  is  its  opera- 
tion. This  is  discussed  under  two  heads:  (a)  Expense  covering  the 
salaries  of  janitors,  engineers,  and  so  forth;  (b)  Expense  covering  neces- 
sary materials  such  as  fuel,  water,  light,  power,  janitor's  supplies,  and 
so  forth. 

Because  of  the  large  quartile  deviation  shown  in  the  tables  following 
on  this  topic  it  will  be  seen  that  this  matter  of  the  operation  of  the  high 
school  has  not  been  very  thoroughly  standardized.  Boards  of  education 
and  school  authorities  in  general  are  often  in  a  quandary  as  to  just  the 
proper  amount  of  money  justifiably  spent  in  a  matter  of  this  kind.  There 
is  such  a  wide  field  of  expenditure  coming  under  this  head  and  so  many 
important  considerations  in  it  that  it  is  difficult  to  formulate  a  pro- 
gressive and  yet  a  sane  policy.  If  the  expenditures  are  curtailed  to  too 
great  an  extent,  the  sanitation  of  the  building  and  consequently  the  health 
of  its  occupants  is  likely  to  suffer.  On  the  other  hand  it  is  very  easy  to 
squander  money  in  useless  expenditures  at  this  point.  Here  again 
progress  will  be  made  toward  a  proper  standardization  of  this  matter  by 
an  investigation  of  the  practice  of  other  schools. 

Table  VIII  is  a  compilation  of  the  statistics  in  this  matter  pertain- 
ing to  the  money  spent  in  the  Illinois  high  schools  for  janitors,  engineers, 
and  so  forth. 

The  expenditures  are  grouped  in  the  various  sums,  $1  to  $100,  $101 
to  $200,  etc.,  as  shown  at  the  top  of  the  table.  The  distribution  of  the 
various  groups  of  schools  follows  the  same  general  plan  as  that  heretofore 
followed.  It  will  be  noted  that  a  large  number  of  schools  in  Classes  A 
and  B  have  an  exceedingly  small  expenditure,  due  to  the  same  fact  noted 
in  the  preceding  table  that  the  high  school  is  quartered  in  the  elementary 
school  building.  Following  the  previous  custom,  we  may  here  again  get 
an  idea  as  to  what  is  the  proper  policy  by  examining  the  situation  in  a 
single  class.  Take  Class  D,  for  example.  City  high  schools  of  this  class 
have  a  median  expenditure  for  janitors,  engineers,  etc.,  of  $1,350.  The 
middle  50  per  cent  of  schools  of  this  group  expend  from  $1,049  to  $1,725 
annually.  The  township  high  schools  have  a  median  expenditure  of 
$2,000.  The  middle  50  per  cent  have  expended  from  $1,245  to  $4,079. 
Again  we  may  very  properly  say  that  a  progressive  school  might  feel  that 
its  expenditures  were  well  within  the  limits  of  good  practice  as  set  by 
schools  of  its  own  group  if  it  expended  a  sum  annually  as  limited  by  the 
median  and  the  third  quartile  or  from  $2,000  to  $4,079.  The  facts  in 
this  table  are  shown  graphically  in  Figure  5. 

This  graph  in  conformity  with  those  preceding,  shows  that  the  ex- 
penditures for  this  item  increase  directly  with  the  increase  in  enrollment 
and  that  the  expenditures  of  the  township  high  schools  on  this  item  are 
higher  than  those  of  the  cityJiigh  schools  in  every  group.  Here  again 
the  quartile  deviation  of  the  township  high  schools  is  greater  than  that 
of  the  city  high  schools  in  every  group  except  Class  B. 

The  second  large  subdivision  in  the  operation  of  the  plant  is  that 
covering  the  expenditures  for  necessary  materials,  such  as  fuel,  water, 
light,  power,  janitor's  supplies,  and  so  forth.  The  expenditures  under 


49 


5*   . 

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TH         CD  CD         CO 
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i  "" 

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O00'i*-I00'£t 

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CO        <N  ^1     1   CO 

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1-1      -  !M  •«*<        CO 

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• 

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OH 

Total  

Total  City  H.  S. 
Total  Twp.  H.  £ 

Grand  total. 

-! 

o 

of 

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fe 

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S 

— 4  I  H  S 


50 


this  head  are  more  thoroughly  standardized  than  in  the  preceding  as 
shown  by  the  fact  that  the  quartile  deviations  are  not  so  large.  Table 
IX  covering  these  expenditures  is  made  up  in  exactly  the  same  manner 
as  the  preceding  one.  It  will  be  noted  that  169  city  high  schools  of  Class 
A  expend  $1  to  $100  per  annum,  and  that  12  township  high  schools  spend 
a  similar  amount.  There  are  2  city  high  schools  and  5  township  high 
schools,  making  a  total  of  7  high  schools  in  the  State,  which  have  an 


9500 

9000 

8500 

8ooo 

75TOO 

7ooo 

690O 

6500 

M 

Sooo 

5*00 

Sooo 

4500 

4000 

35OO 

3000 

2.500 

M 

2238 

2ooo 

„    M 

2ooo 

Mj 

J35o 

IOOO 

r~~^l 

87o 

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655 

rl-c^ 

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t          101       201       301       SO 
TO           Tb           Tto           TO         AM 
»OO      200      3OO      Soo      ot« 

1 
0 
R. 

Fig  5.— Operation  of  the  Plant- 
Janitors,  engineers,  etc.  The  high 
schools  are  classified  at  the  bottom  ac- 
cording to  the  number  enrolled.  The  up- 
right bars  represent  the  annual  expend- 
iture for  operation  from  the  first  quartile 
to  the  third  quartile  ;  the  hollow  bars  rep- 
resent the  city  high  schools  and  the  solid 
bars  the  township  high  schools.  M  repre- 
sents the  median  annual  expenditure  in 
each  case.  An  equalized  scale  of  the  an- 
nual expenditures  is  shown  at  the  right 
and  a  scale  of  the  medians  at  the  right. 


annual  expenditure  of  over  $5,000  under  this  head.     The  facts  set  forth 
in  this  table  are  shown  graphically  in  Figure  6. 

The  same  general  trend  is  noted  here  as  in  all  of  the  preceding  tables 
thus  far,  namely,  that  larger  sums  are  expended  in  the  township  high 
schools  for  this  purpose  than  in  the  city  high  schools,  in  every  group. 
The  quartile  deviations  are  greater  in  the  case  of  township  high  schools 
in  every  group  than  in  the  city  high  schools.  School  authorities  who 


Its 


51 

S32         S5 


g£          S3 


8 


2    52 


OOO'SS-IOO'fi 


ooo'sf-ios'zs 


OOS'lt-TOO'll 


CN        -eo 


000'  IS-I06* 


CN  CN    I   CN        CN 


0068-108$ 


i-H        CN  T-I     I   CO 


008t-10Z$ 


-I    I   CN        t-l 


coco   I  co      tHco   I  3 


3M  13    *«  I 


ooes-iost 


oost-ioit 


CO  I    CO 


g    S"3  I  a    ^ 


OOTt-It 


:s  s 


8* 


53 


II 


eL     EH 


OE-t 


GQ     .       ^       CO     .       ^ 

M  O       £l3  ® 

SEH        S5 


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aw  S 

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GEH    g 

11° 


ll.OOO 


IO,5"00 


10,000 


9.500 


QOOO 


8,5-00 


8.OOO 


7.500 


7.000 


foOOO 


5.500 


S.OOO 


.500 


M  5<747 


-  174-3 
-Itoteb 


Fig.  6. — Operation  of  the  Plant — 
Fuel,  water,  supplies,  etc.  The  high 
schools  are  classified  at  the  bottom  ac- 
cording to  the  number  enrolled.  The 
upright  bars  represent  the  annual  ex- 
penditure from  the  first  quartile  to  the 
third  quartile  ;  the  hollow  bars  repre- 
sent the  city  high  schools  and  the  solid 
bars  the  township  high  schools.  M 
represents  the  median  annual  expen- 
diture in  each  case.  An  equalized  scale 
of  the  annual  expenditure  is  shown  at 
the  left  and  a  scale  of  the  medians  at 
the  right. 


53 


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P 


31       1! 


ss 


O  CO 

IB 


Sc?  §  iS  ^  ^ 


CO       t^CO    I   O       COCO    I   CO 


ooo'st-ioo'i 


OOO'H-IOO'ES 


rH          CO  O*      I     *O 


(M         COCO     I    CO         <M 


(M          >OCO     I    rH 


OOO'Zt-IOS'Tf 


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rH          COOJ     I    >0 


OOS'll-IOO'll 


S^     IS 


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I  rH      I    CM          (M  CO 


006$-I08$ 


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008$-IOZ$ 


IrH     I    CO          M 


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54 

wish  to  compare  their  own  expenditures  under  this  head  with  those  of 
other  schools  can  very  readily  adopt  a  plan  suggested  in  the  previous 
table  of  noting  the  expenditures  of  the  schools  of  their  class.  They  can 
note  the  median  expenditure  and  that  of  the  middle  50  per  cent,  compare 
their  own  expenditures  with  these  amounts  and  consider  the  various 
factors  that  enter  into  their  own  situation,  and  thus  reach  a  satisfactory 
conclusion  as  to  their  own  policy. 

In  Table  X  the  expenditures  for  janitors,  engineers,  etc.,  and  that 
for  materials  such  as  water,  light,  power,  janitor's  supplies,  etc.,  are 
added  together,  showing  the  total  cost  for  the  operation  of  the  plant. 
Because  the  two  tables  have  exactly  the  same  features  and  trend  no  new 
information  would  come  from  a  consideration  of  Table  X.  It  is  val- 
uable principally  as  furnishing  a  set  of  totals. 

It  is  possible  by  a  study  of  this  table  to  find  out  the  complete  cost  for 
operating  the  plant.  This  is  sometimes  very  desirable.  For  example, 
taking  Class  D  as  heretofore,  it  is  noted  that  the  median  total  cost  for 
operating  city  high  schools  of  this  group  is  $2,390.  The  middle  50  per 
cent  of  schools  of  this  group  expend  from  $1,516  to  $3,805.  The  median 
total  expenditure  for  operating  township  high  schools  of  this  group  is 
$3,256.  The  middle  50  per  cent  expend  from  $2,120  to  $8,297.  Look- 
ing at  the  other  part  of  the  table  it  is  to  be  noted  that  16  high  schools  in 
the  State  expend  over  $5,000  annually  for  operating  the  plant. 

CHARACTERISTICS  OF  THE  PLANT. 

After  we  have  given  full  consideration  to  the  site  and  the  building 
and  their  cost  and  have  given  particular  study  to  their  maintenance  and 
operation,  the  next  question  that  arises  is  as  to  the  characteristics  of  the 
plant.  Great  variation  necessarily  will  be  noted  under  this  head.  Some 
institutions  have  a  great  variety  of  features  which  are  designed  to  accom- 
modate the  pupils  and  the  community.  Others  will  be  conservative  on 
this,  and  if  we  make  a  proper  estimate  of  the  plant,  we  do  not  get  a  com- 
plete understanding  of  the  matter  until  we  have  studied  this  topic. 

In  the  routine  blanks  on  file  in  the  office  of  the  Superintendent  of 
Public  Instruction  in  Illinois  there  is  no  detailed  information,  however, 
that  is  sufficient  to  give  us  a  very  adequate  conception  of  what  the  situa- 
tion is  in  the  various  groups  of  schools  under  consideration.  This  in- 
formation is  tabulated  in  Tables  XI  to  XVII  inclusive  and  is  shown 
graphically  in  Figure  7.  At  the  head  of  the  table  in  each  case  is  shown 
the  information  on  the  basis  of  which  the  table  is  made  up.  This  is  in 
the  form  of  yes  and  no  questions. 


55 


TABLE  XI— BUILDING— (APPROVAL  BLANK  NO.  12). 


Yes. 

No. 

Blanks. 

Total. 

Number. 

Per  cent. 

Number. 

Percent. 

Number. 

Percent. 

A 

1-100 

B 

101-200 

C 

201-300 

D 
301-500 

E 
501-Over 

City  H.  S  

12 
24 

4.87 
51.06 

220 

18 

89.45 
38.29 

14 
5 

5.69 
10.64 

246 
47 

Twp.  H.  S  

Total 

36 

8 
16 

12.28 

11.76 
80.00 

238 

55 
3 

81.2 

80.88 
15.00 

19 

5 
1 

6.48 

7.35 
5.00 

293 

68 
20 

City  H.  S.. 

Twp.  H.  S 

Total 

24 

8 
9 

27.27 

61.53 
69.2 

58 

4 
1 

65.9 

30.76 
7.69 

6 

1 

3 

6.81 

7.69 
23.00 

88 

13 
13 

CityH.  S... 

Twp.  H.  S 

Total 

17 

11 
11 

65.38 

100.00 
100.00 

5 

19.2 

4 

15  38 

26 

11 
11 

City  H.  S. 

Twp.  H.  S  

Total 

22 

14 
3 

100.00 

93.3 
100.00 

22 

15 
3 

CityH.  S. 

1 

6.66 

Twp.  H.  S  

Total 

17 
116 

94.4 
25  95 

302 

5.55 
67.56 

29 

6.48 

18 

447 

Grand  total  

TABLE  XII— LIBRARY— (APPROVAL  BLANK  NO.  27). 


Yes. 

No. 

Blanks. 

Total. 

Number. 

Percent. 

Number. 

Percent. 

Number. 

Percent. 

A 

1-100 

B 

101-200 

C 
201-300 

D 

301-500 

E 
501-Over 

CityH.  S. 

233 

44 

94.7 
93.61 

3 
1 

1.2 
2.12 

10 
2 

4.00 
4.25 

246 

47 

Twp  H.  S 

Total 

277 

65 
19 

94.5 

95.58 
95.00 

4 

1.36 

12 
3 

4.09 

4.41 
5.00 

293 

68 
20 

City  II.  S 

Twp  H  S 

Total 

84 

13 
11 

95.45 

100.00 
84.6 

4 

4.54 

88 

13 
13 

CityH.  S  
Twp  H  S 

2 

15.38 

Total 

24 

10 
11 

92.3 

90.9 
100.00 

2 
1 

7.69 
9  09 

26' 

11 
11 

CityH.S  
Twp  H  S 

Total 

21 

15 
3 

95.45 

100.00 
100.00 

1 

1 

4.5 

22 

15 
3 

City  H  S 

Twp.  H.  S  

Total 

18 
424 

100.00 
94.85 

18 

447 

Grand  total  

4 

.89 

19 

4.28 

56 


TABLE  XIII— LABORATORY  EQUIPMENT— (APPROVAL  BLANK  NO.  29). 


Equipped 
for 
teachers  only. 

Pupils  also. 

Blank. 

Total 
schools. 

Number. 

Percent. 

Number. 

Per  cent. 

Number. 

Percent. 

A 

1-100 

B 

101-200 

c 

201-300 

D 

301-500 

E 

501-Over 

CityH.  S... 
Twp.  H.  S  

42 
4 

17.07 
8.50 

185 
40 

75.20 
85.10 

19 
3 

7.70 
6.30 

246 
47 

Total  
City  H  S 

46 

15.69 

225 

61 
19 

76.79 

89.70 
95.00 

22 

7 
1 

7.50 

10.29 
5.00 

293 

68 
20 

TwpH.S 

Total 

80 

12 
10 

90.90 

92.30 
83.30 

8 

1 

2 

9.09 

7.69 
16.66 

88 

13 
12 

City  H.  S 

Twp.  H.  S  

Total..  

22 

10 
11 

88.00 

90.90 
100.00 

3 
1 

12.00 
9.09 

25 

11 
11 

CityH.  S  

Twp  H  S 

Total 

21 

15 
3 

95.45 

100.00 
100.00 

1 

4.50 

22 

15 
3 

City  H  S 

Twp  H  S 

Total 

18 
366 

100.00 
82.06 

18 
446 

Grand  total 

'46 

10.30 

34 

7.60 

TABLE  XIV— MANUAL  TRAINING  ROOMS— (APPROVAL  BLANK  NO.  31). 


Y 

33. 

N 

0. 

Bin 

flks. 

Number. 

Percent. 

Number. 

Per  cent. 

Number. 

Per  cent. 

i 

Total. 

A 

CityH  S  

63 

25.6 

150 

60  97 

33 

13.41 

246 

1-100 

Twp  H  S 

21 

44.68 

22 

46.8 

4 

8.51 

47 

Total 

84 

28.66 

172 

58.7 

37 

12.62 

293 

B 

City  H.  S 

32 

47.05 

30 

44.11 

6 

8.82 

68 

101-200 

Twp.  H.  S  

12 

60.00 

6 

30.00 

2 

10.00 

20 

Total  

44 

50.00 

36 

49.9 

8 

9.09 

88 

c 

City  H.  S.  

8 

61.53 

2 

15.38 

3 

23.07 

13 

201-300 

Twp.  H.  S  

9 

69.23 

2 

15.38 

2 

15.38 

13 

Total  

17 

65.38 

4 

15.38 

5 

19.23 

26 

j) 

City  H  S 

11 

100  00 

11 

301  500 

Twp  H  S 

11 

100  00 

11 

Total 

22 

100  00 

22 

E 

City  H  S 

14 

93  33 

1 

6.66 

15 

501  Over 

Twp  H  S 

3 

100  00 

3 

Total 

17 

94  44 

1 

5  55 

18 

Grand  total  

184 

41.16 

213 

47.65 

50 

11.18 

447 

'57 


TABLE  XV— DOMESTIC  SCIENCE  ROOMS— (APPROVAL  BLANK  NO.  32). 


Yes. 

N  . 

Blanks. 

Total. 

Number. 

Percent. 

Number. 

Percent. 

Number. 

Percent. 

A 
1-100 

B 

101-200 

c 

201-300 

D 

301-500 

E 
501-  Over 

City  H.  S 

34 
20 

13.82 
42.55 

184 
19 

74.79 
40.42 

28 
8 

11.38 
17.02 

246 
47 

Twp.H.  S.  ...... 

Total 

54 

24 
12 

18.43 

35.29 
60.00 

203 

34 

7 

69.28 

50.00 
35.00 

36 

10 
1 

12.28 

14.70 
5.00 

293 

68 
20 

City  H.  S 

Twp  H  S 

Total 

36 

8 
9 

40.9 

61.53 
69.23 

41 

4 
2 

46.59 

30.76 
15.38 

11 

1 

2 

12.5 

7.96 
15.38 

88 

13 

13 

City  H.  S... 

Twp.  H.  S 

Total  

17 

9 
10 

65.38 

81.81 
90.9 

6 

1 
1 

23.07 

9.09 
9.09 

3 
1 

11.53 
9.09 

26 

11 
11 

CityH.  S... 

Twp  H   S 

Total  
City  H  S 

19 

15 
2 

17 
143 

86.36 

100.00 
66.66 

2 

9.09 

1 

4.54 

22 

15 

3 

Twp  H   S 

1 

33.33 

Total 

94.44 
31.99 

1 

253 

5.55 
56.59 

18 
447 

Grand  total  

51 

11.41 

TABLE  XVI— GYMNASIUM— (APPROVAL  BLANK  NO.  34). 


Y< 
Number. 

M. 

No. 

Blanks. 

Total. 

Per  cent. 

Number. 

Per  cent. 

Number. 

Percent. 

A 

1-100 

B 

101-200 

C 

201-300 

D 

301-500 

E 
501-Over 

City  H.  S... 

31 

17 

'      12.6 
36.17 

194 
26 

78.86 
55.31 

21 

4 

8.53 
8.51 

246 
'    47 

Twp.  H.  S 

Total 

48 

18 
12 

16.38 

26.47 
60  00 

220 
45 

"7 

75.08 

66.  .7 
35  00 

25 

5 
1 

8.53 

7.3.5 
5.00 

293 

68 
20 

City  H.  S... 

Twp.  H.  S 

Total  

30 

7 
6 

34.09 

53.84 
46  15 

52 

5 
5 

59.09 

3S.46 
38.46 

6 

1 
2 

6.81 

7.69 
15.  38 

88 

13 
13 

CityH.  S......... 
Twp.  H.  S 

Total  
City  H.  S... 

13 

5 

7 

50.00 

45.45 
63.  63 

10 

5 
3 

8.46 

45.45 
27.27 

3 

1 
1 

11.53 

0.09 
9.09 

26 

11 
11 

Twp.  H.  S 

Total  
City  H  S 

12 

11 
2 

54.  54 

73.33 
6fi.  66 

8 

4 
1 

35.  36 

26.65 
33.3 

2 

9.09 

22 

15 
3 

Twp.H.  S...  
Total  
Grand  total  

13 

116 

72.22 
25.95 

5 

295 

27.77 
65.99 

18 
447 

36 

8.05 

58 


TABLE  XVII— ATHLETIC  FIELD— (APPKOVAL  BLANK  NO.  35). 


Yes. 

No. 

Blanks. 

Total. 

Number. 

Percent. 

Number. 

Percent. 

Number. 

Percent. 

A 

1-100 

B 

101-200 

c 

201-300 

D 

301-500 

E 

501-Over 

City  H.  S 

94 
29 

38.31 
61.70 

101 
15 

41.06 
31.91 

51 
'    3 

20.73 
6.38 

246 

47 

Twp.  H.  S  

Total  

123 

23 
14 

47.97 

33.82 
70.00 

116 

33 
3 

39.59 

48.52 
15.00 

54 

12 
3 

18.43 

17.64 
15.00 

293 

68 
20 

CityH.  S... 

Twp.  H.  S 

Total 

37 

3 

4 

42.04 

23.07 
30.76 

36 

8 
5 

40.9 

61.53 
38.46 

15 

2 
4 

17.04 

15.38 
30.76 

88 

13 
13 

City  H.S... 
Twp.  H.  S  . 

Total 

7 

4 
6 

26.92 
36.36 

13 

5 
3 

50.00 

45.45 
27.27 

6 

2 
2 

23.07 

18.18 
18.18 

26 

11 
11 

City  H.  S. 

Twp.  H.S  

Total  

10 

4 

2 

45.45 

26.66 
66.66 

8 

11 
1 

36.36 

73.33 
33.33 

4 

18.18 

22 

15 
3 

CityH.  S... 

Twp.  H  S 

Total  

6 
183 

33.33 
40.93 

12 

185 

£6.66 
41.38 

18 

447 

Grand  total  

79 

17.67 

For  example,  Table  XI  shows  the  percentage  of  schools  in  the  various 
groups  which  possess  a  building,  the  percentage  who  do  not  possess  a 
building,  and  the  percentage  which  is  blank  or,  in  other  words,  those 
who  make  no  report.  In  this  table  there  are  25.9  per  cent  of  the  schools 
which  have  a  building,  67.55  per  cent  which  have  no  building,  and  6.5 
per  cent  are  reported  as  blank;  in  other  words,  they  make  no  report. 
Since  this  information  comes  from  447  schools  it  is  very  complete.  The 
same  general  situation  will  be  found  in  the  other  tables.  For  instance,  in 
reporting  on  the  manual  training  situation,  11.2  per  cent  of  the  schools 
failed  to  report,  41.16  per  cent  report  that  they  have  manual  training 
rooms,  47.6  per  cent  report  that  they  do  not  have  any.  The  situation 
with  reference  to  any  particular  group  of  schools  can  readily  be  found 
by  scrutinizing  the  table.  For  example,  in  Table  XI  it  is  noted  in  Class 
A  that  89.45  per  cent  of  the  city  high  schools  do  not  have  a  building, 
and  that  38.29  per  cent  of  the  township  high  schools  do  not  have  a  build- 
ing. Passing  down  the  table,  in  Class  C  30.76  per  cent  of  the  city  high 
schools  of  this  group  do  not  have  a  building,  7.69  per  cent  of  the  town- 
ship high  schools  do  not  have  a  building. 

Since  the  facts  in  all  of  these  tables  are  shown  in  graphic  form  in 
Figure  7  we  may  refer  to  that  in  order  to  get  a  general  idea  of  the  vari- 
ous high  schools  of  the  various  groups  so  far  as  the  characteristics  of 
the  plant  are  concerned.  At  the -left  hand  side  of  the  graph  in  the  square 
provided  for  it  is  shown  the  number  of  the  question  on  which  the  table 
is  made  up  and  on  which  the  graph  is  constructed.  The  second  column 
shows  the  size  of  the  school,  the  third  column  shows  the  percentage  of 
schools  having  the  feature  under  consideration.  For  example,  in  that 
part  of  the  graph  appertaining  to  the  building,  in  Group  A  4.87  per 


59 

cent  of  the  city  high  schools  have  a  building  and  51.6  per  cent  of  the 
township  high  schools  have  a  building.  The  hollow  bar,  as  heretofore,  in 
each  case  represents  the  city  high  schools,  the  solid  bar  represents  the 
township  high  schools. 

It  will  be  noted  that  in  the  smaller  Classes  A,  B  and  C  the  township 
high  schools  are  much  better  provided  for  in  the  matter  of  buildings  than 
the  city  high  schools.  In  that  part  of  the  graph  referring  to  the  library 
we  have  a  remarkable  variation  from  the  trend  heretofore  shown  in 
the  comparisons  of  the  equipment  of  the  township  high  schools.  In 
Classes  A,  B  and  C  the  township  high  schools  are  not  as  well  provided 
for  in  the  matter  of  library  as  the  city  high  schools.  In  Class  E  they 
are  equally  well  provided  for.  In  Class  D  there  are  more  of  the  town- 
ship high  schools  which  have  libraries  than  city  high  schools. 

As  to  the  question  whether  or  not  the  laboratories  provided  for  these 
various  buildings  are  equipped  for  pupils,  it  is  seen  that  in  Class  E  the 
two  groups  of  high  schools  are-  equally  well  provided  for.  In  Class  C 
the  township  high  schools  are  not  so  well  provided  as  the  city  high  school. 
In  all  other  classes  the  township  high  schools  are  better  provided  for 
than  the  city  high  schools. 

As  to  the  number  of  manual  training  rooms  (Question  31),  in  Class 
C  the  city  high  schools  and  the  township  high  schools  are  equally  well 
provided.  In  every  other  class  the  township  high  schools  surpass  the 
city  high  schools. 

In  the  matter  of  provision  for  domestic  science  rooms,  in  Class  E 
the  city  high  schools  are  better  provided.  In  every  other  class  the  town- 
ship high  schools  are  very  much  better  provided  for. 

In  the  matter  of  gymnasium,  in  Classes  C  and  E  the  city  high 
schools  are  better  provided  for;  in  every  other  class  the  township  high 
school  are  better  provided  for.  In  the  matter  of  an  athletic  field  the 
township  high  schools  are  better  provided  for  in  every  class  than  the 
city  high  schools.  The  remarkable  situation  shown  in  this  graph  is 
the  fact  that  the  smaller  classes  A  and  B  are  better  provided  even  than 
the  upper  classes.  This  is  very  likely  due  to  the  fact  that  in  making  out 
the  report  on  the  Approval  Blank  the  smaller  schools  report  themselves 
as  possessing  athletic  fields  when  they  probably  rent  them  or  lease  them. 
It  is  another  evidence  of  the  tendency  on  the  part  of  schools  of  this  grade 
to  magnify  whatever  possessions  they  might  have  with  a  view  to  securing 
recognition  for  their  schools. 

One  of  the  most  important  features  in  the  equipment  of  a  school, 
which  is  often  neglected,  is  the  library.  In  recent  years  large  sums  of 
money  have  been  expended  for  laboratory  equipment,  domestic  science, 
manual  training,  etc.,  all  of  which  expenditures  are  amply  justified. 
However,  the  center  of  every  high  school  should  be  its  library,  and  ex- 
penditures for  equipment  are  woefully  out  of  balance  when  the  appropria- 
tions for  this  item  of  equipment  are  low  and  others  are  adequately 
provided  for.  It  adds  much  more  to  the  efficiency  of  every  department 
in  the  building,  and  should  be  the  center  of  academic  activity.  As  was 
shown  in  Figure  7,  the  township  high  schools  are  inferior  to  the  city 
high  schools  in  this  particular,  although  superior  in  every  other.  The 
information  regarding  the  libraries  in  the  State  of  Illinois  is  reported  in 


60 


Question  23  of  Form  2.     This  information  is  assembled  and  displayed 
in  Table  XVIII. 

This  table  is  made  up  in  exactly  the  same  manner  as  the  preceding 
tables.  Here  again  the  quartile  deviation  is  greater  in  the  case  of  the 
township  high  schools  than  in  the  city  high  schools  in  every  case  except 


Question 

School 

K 

12..  B  ui  L-  &  i  tv  G 

to 

4.87 

1  O  1 

11.76 

^ol 

fcl.OS 

3t'ol 

IOO 

50  1 

^3.3 

2  7.  1,/OfSA/^y 

1 

<?4-.7 

^^^^     1 

101 

^£-.5- 

•••••^ 

201 

<oo. 

1 

301 

-?0.? 

IOO 

o\ 

<M 

to 

7.5:2, 

101 

89.7 

2Ol 

92.3 

^^^^^^       1 

3&1 

90.9 

I°d 

IOO 

Figure  7a 

Figure  7. — Characteristics  of  the  Plant.  In  the  vertical  oblong  spaces  to  the 
left  are  shown  the  number  for  the  question  in  Form  2  from  which  the  information 
is  derived  and  the  particular  feature  of  the  plant  referred  to  each  respective  sec- 
tion of  the  graph.  In  each  section  of  the  graph  the  schools  are  classified  in  the 
second  vertical  column  according  to  their  enrollment.  In  the  third  vertical 
column  the  percentage  of  the  schools  in  each  group  possessing  the  feature  desig- 
nated in  the  first  vertical  column  is  shown.  This  percentage  is  represented  at  the 
right  by  horizontal  bars,  the  hollow  bars  representing  city  high  schools,  the  solid 
bars  the  township  high  schools.  "• 

in  Class  A.,  where  it  is  smaller.     The  facts  brought  out  in  Table  XVIII 
are  shown  graphically  in  Figure  8. 

The  graph  here  referred  to  is  constructed  in  exactly  the  same  man- 
ner as  those  heretofore.     An  equalized  scale  appears  at  the  left  hand  and 


61 


a  scale  of  medians  at  the  right.  It  is  particularly  to  be  noted  here  that 
in  li'brary  equipment  the  township  high  schools  are  inferior  to  the  city 
high  schools  in  Class  A,  B  and  C ;  they  are  superior  in  Classes  D  and  E. 


Figure  7b 


The  smaller  township  high  schools  have  not  realized  the  necessity  for  a 
library. 

In  Table  XIX  we  have  a  display  of  the  information  as  to  the  num- 
ber of  students  for  whom  the  laboratories  in  the  high  tchool  are  equipped. 


s 

cico" 


O  O  ifl  o 

38  £2 


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The  distribution  of  the  school  groups  at  the  left  of  the  table  is  shown  in 
the  regular  manner.  At  the  top  of  the  various  columns  the  number  of 
pupils  for  whom  the  laboratories  are  equipped  are  grouped,  1  to  5,  6  to 
10,  11  to  15,  and  so  forth. 

At  the  right  of  table  is  shown  a  column  of  blanks,  indicating  the 
number  of  schools  who  do  not  report  on  this  item,  and  the  column  at  the 
extreme  right  is  the  number  of  schools  involved.  There  are  446  schools 
from  which  the  information  was  tabulated.  Of  these  schools  17  per  cent 
do  not  report  on  the  item.  In  each  of  the  other  columns  the  number  and 
percentage  of  students  in  each  group  is  shown.  In  this  table  it  appears 
very  readily  that  there  is  no  important  distinction  between  the  township 
high  schools  and  the  city  high  schools.  The  number  of  students  for 


Figure  8. — Volumes  in  the  Library.  The  high 
schools  are  classified  at  the  bottom  according  to  the 
number  enrolled.  The  upright  bars  represent 
the  range  in  number  of  volumes  from  the  first 
quarter  to  the  third  quarter;  the  hollow  bars  rep- 
resent the  city  high  schools  and  the  solid  bars  the 
township  high  schools.  M  represents  the  median 
number  of  volumes  in  each  case.  An  equalized 
scale  of  the  number  of  volumes  is  shown  at  the 
left  and  a  scale  of  the  medians  at  the  right. 


5000 


•4-Soo 


3500 


3000 


2500 


If 


311? 


.309 


I        loi      2ol      301     501 

TO  TO          To  To         AND 

100      200     30fl      Soo     OVER 


which  laboratories  are  equipped  is  worthy  of  some  attention,  however. 
In  Class  E  laboratories  are  typically  equipped  for  from  21  to  25  students. 
In  Class  D  the  mode  in  the  group  is  from  16  to  20  for  the  township 
high  schools  and  from  21  to  25  for  the  city  high  schools.  In  Class  C 
the  mode  is  from  21  to  25  although  there  are  5  in  the  group  from  26  to 
30.  In  Class  B  the  mode  is  from  16  to  20.  In  Class  A  two  sizes  pre- 
dominate, 11  to  15  and  16  to  20. 

In  Table  XX  is  compiled  the  information  supplied  under  Question 
23  of  the  Approval  Blank.  This  is  in  reference  to  the  number  of  sittings 
in  the  General  Assembly. 


65 


TABLE  XX— NUMBER  OF  SITTINGS  IN  GENERAL    ASSEMBLY— (APPROVAL    BLANK 

NO.  23). 


! 

5 

8 

i-t 

i 
o 

} 

S 

401-500 

501-750 

S 

i 

o 

•1 

1 

H 

A 

CityH.  S... 

54 

154 

24 

7 

5 

1 

1 

246 

1-100 

Twp.H.S  

6 

26 

11 

1 

1 

2 

47 

Total  

60 

180 

35 

8 

6 

3 

1 

293 

B 

CityH.  S... 

10 

46 

4 

1 

68 

101-200 

Twp.H.S  

3 

4 

11 

1 

1 

20 

Total  

10 

14 

57 

5 

1 

1 

88 

c 

CityH.  S  

1 

6 

5 

1 

13 

201-300 

Twp.  H.  S  :. 

1 

3 

5 

2 

i 

12 

Total  

1 

1 

g 

10 

1 

2 

i 

25 

D 

City  H.  S 

1 

5 

2 

2 

i 

11 

301-500 

Twp.  H.  S  . 

4 

5 

1 

i 

11 

Total  

1 

9 

7 

3 

2 

22 

E 

CityH.  S... 

2 

1 

2 

1 

5 

2 

2 

15 

501-Over 

Twp.  H.  S 

1 

1 

1 

3 

Total  

3 

1 

2 

1 

5 

3 

3 

18 

Total  City  H.S  

63 

165 

77 

22 

10 

4 

6 

4 

2 

353 

Total  Twp.  H.  S 

11 

30 

25 

11 

7 

5 

3 

1 

93 

Grand  total 

74 

195 

102 

33 

17 

q 

Q 

7 

3 

446 

From  an  examination  of  this  table  it  will  be  noted  that  it  is  con- 
structed on  the  plan  of  the  preceding  ones.  It  will  be  readily  seen  that 
the  various  high  schools  typically  provide  the  number  of  sittings  to  ac- 
commodate their  enrollment.  For  example,  both  township  high  schools 
and  city  high  schools  having  an  enrollment  of  101  to  200  provide  assem- 
bly room  sittings  for  that  number  of  students.  For  example,  in  Class  B 
there  are  57  schools  that  have  assembly  sittings  to  the  number  of  101 
to  200. 

The  same  information  is  provided  in  Table  XXI  but  derived  from 
the  other  blank,  that  is  Form  2. 

This  information  is  organized  in  the  manner  habitually  followed  in 
this  study.  It  is  carried  out  in  more  detail  than  in  the  previous  table. 
The  medians,  quartiles  and  quartile  deviations  are  shown.  The  same 
facts  as  noted  in  the  preceding  table  are  shown  here,  and  this  topic  needs 
no  further  discussion. 

In  planning  the  construction  of  a  new  high  school  building  one  of 
the  first  problems  that  confronts  the  architect  is  the  unit  of  construction, 
.which  must  necessarily  be  based  upon  the  number  of  recitation  rooms, 
since  recitation  rooms  are  more  numerous  than  rooms  of  any  other  type. 
The  school  authorities  who  are  responsible  for  inaugurating  a  building 
campaign  must  necessarily  have  in  their  minds  just  how  elaborately  they 
are  going  to  equip  their  plant  with  laboratories,  manual  training  rooms, 
domestic  science  rooms,  and  so  forth.  These  special  rooms  have  had 
— 5  I  H  S 


66 


s 


«:•§ 

cc  ^3 
•-  fe 

53 


•J8AO-TOOI 


gjo 


C^l          rH  CSI     I    CO          CO  O» 


O00'l-I06 


006-108 


008-102, 


OOZ-I09 


009-TOS 


co      •*  •*   I  oo 


OOfr-108 


rH  0000  rH  CO        •  CO  O>  OO 


OOS-TOS 


OO          rH  (N      I     CO          rH        •      I     rH  1C  • 


oos-ioi 


OOT-9Z 


OS-9S 


SI-T 


•siooqos 


* 


2M  IS    38  IS 


I  II I 

^•3^0 


>  » 
§ 


67 


some  considerations  in  the  preceding  tables  and  in  the  preceding  dis- 
cussion. Schools  from  200  to  500  typically  have  2  domestic  science 
rooms,  2  manual  training  rooms,  two  or  more  laboratories,  a  gymnasium 
and  athletic  field,  and  so  forth.  Just  how  many  of  these  special  rooms 
will  be  provided  in  the  building  depends  upon  the  amount  of  money 
available  and  the  policy  of  the  school  authorities.  However,  the  effi- 
ciency of  the  building  will  depend  largely  upon  adequate  provision  for 
recitation  rooms.  The  number  of  recitation  rooms  is  the  first  considera- 
tion in  the  construction  of  a  high  school.  In  Table  XXII  is  shown  a  set 
of  facts  as  to  the  number  of  recitation  rooms  which  are  in  use  in  the  high 
schools  of  the  various  sizes  indicated. 

TABLE  XXII— NUMBER    OF    RECITATION    ROOMS— (NORTH    CENTRAL   BLANK). 


A 

1-100 

B 

101-200 

C 

201-300 

D 

301-500 

E 

501-Over. 

F 

Total. 

1 

Si 

i 

si 
& 

Median. 

I« 

i 

1 

O    © 

F-H      fcfl 

Median. 

si 

Median. 

§ 

9 

1 

•3  S 

53 

North  Central... 

4 

4-7 

6 
6 

5-6 
5-8 
4-9 

8 
9 
8 

6-10 
7-10 
6-10 

12 
14 
14 

10-15 
12-16 
11-16 

20 
17 

16-26 
16-25 

37 
33 

27-44 
23-40 

7 
9 
8 

5-11 
5-16 
5-14 

Illinois 

Township  High  School  

This  information  is  compiled  from  a  preliminary  transcript  pre- 
pared by  Mr.  Counts  in  preparation  for  his  study  "A  Study  of  Colleges 
and  High  Schools  in  the  North  Central  Association/'  published  by  the 
United  States  Bureau  of  Education,  referred  to  in  the  second  chapter  of 
this  study.  In  this  table  the  various  groups  of  high  schools  are  arranged 
at  the  top ;  the  North  Central  Association,  the  Illinois  high  schools,  and 
the  township  high  schools  are  shown  in  the  left  hand  column.  The  table 
shows  the  median  number  of  recitation  rooms  in  the  high  schools  of  the 
various  groups,  in  the  column  marked  "medians."  The  middle  50  per 
cent  of  each  group  is  shown  also  under  the  heading  marked  "Quartile 
Kange."  For  example,  on  reading  the  table  from  left  to  right  beginning 
with  the  line  opposite  "North  Central,"  we  find  that  in  the  North  Central 
schools  in  Class  A  the  median  is'  4  recitation  rooms,  and  the  middle  50 
per  cent  of  the  schools  of  the  North  Central  Association  have  from  3  to  6 
recitation  rooms,  in  this  group.  In  the  North  Central  Association  in 
Class  B  the  median  number  of  recitation  rooms  in  schools  of  this  group 
is  5.  The  middle  50  per  cent  of  the  quartile  range  as  it  is  called  here, 
have  from  5  to  6  recitation  rooms,  and  so  on.  The  situation  may  be 
noted  for  the  city  high  schools  in  Illinois  and  for  the  township  high 
schools  in  the  same  manner.  It  will  be  noted  that  in  Class  D  the  median 
number  of  recitation  rooms  in  the  North  Central  Association  is  12,  and 
the  middle  50  per  cent  is  from  10  to  15.  Illinois  high  schools  in  this 
group  have  a  median  of  14  class  rooms ;  the  middle  50  per  cent  is  from 
12  to  16.  Township  high  schools  have  a  median  of  14;  the  middle  50 
per  cent  have  from  11  to  16  recitation  rooms. 


68 

Here  again  in  preparing  to  erect  a  high  school  plant  the  school 
authorities  responsible  for  the  matter  could  safely  determine  upon  a  cer- 
tain number  of  recitation  rooms  in  the  light  of  this  table,  in  addition  to 
the  special  rooms  for  domestic  science,  manual  training,  etc.,  which  they 
may  decide  to  incorporate.  For  example,  if  they  had  an  enrollment  of 
200  but  expected  their  population  and  their  proportionate  high  school 
enrollment  to  increase,  they  might  plan  to  construct  a  building  to  accom- 
modate from  300  to  500  students.  In  that  case  they  would  determine 
that  in  addition  to  the  various  special  rooms,  manual  training,  domestic 
science,  etc.,  which  they  might  construct,  a  moderate  estimate  of  the 
recitation  rooms  needed  would  be  14.  More  progressive  people  would 
prefer  to  make  the  limit  set  by  the  median  and  the  third  quartile,  14  to 
16.  The  provision  would  not  be  extraordinary  if  16  recitation  rooms 
were  provided. 

In  Table  XXIII  is  displayed  the  information  coming  from  Question 
15  of  the  Approval  Blank. 

This  has  to  do  with  the  number  of  rooms  used  for  the  high  school 
where  there  is  no  separate  building.  It  also  gives  the  information  as  to 
the  number  of  schools  which  have  no  building.  There  are  446  high 
schools  involved.  Of  these  schools  3.13  per  cent  make  no  report  on  this 
itern^  68.83  per  cent  report  that  they  have  no  high  school  building,  28.02 
per  cent  represent  that  they  have  buildings.  This  large  percentage  is 
due  to  the  fact  that  so  large  a  proportion  of  the  high  schools  in  the 
State  are  small.  There  are  293  schools  in  the  State  having  an  enroll- 
ment of  1  to  100  pupils ;  246  of  these  are  city  high  schools,  47  are  town- 
ship high  schools.  Of  the  city  high  schools  in  Class  A  87.8  per  cent  have 
no  separate  building;  46.8  per  cent  of  the  township  high  schools  have 
no  separate  building.  In  both  classes  A  and  B  there  is  a  large  percentage 
which  have  no  separate  building.  In  the  middle  portion  of  the  table  are 
shown  the  number  of  schools  in  each  group  having  1,  2,  3,  4,  5  rooms, 
and  so  on.  In  each  case  also  the  percentage  of  schools  having  a  given 
number  of  rooms  is  indicated.  This  percentage  is  based  upon  the  num- 
ber of  schools  in  that  group.  For  example,  in  the  city  schools  in  Class 
A  there  are  7  high  schools  which  have  6  rooms  each.  This  is  3.24  per 
cent  of  the  total  number  in  this  group,  which  is  246.  At  the  right  of  the 
table  are  shown  the  medians,  the  quartiles  and  the  quartile  deviations. 
For  example,  in  Class  A  the  median  number  of  rooms  which  city  high 
schools  with  no  separate  building  to  occupy  is  3 ;  the  middle  50  per  cent 
of  these  schools  occupy  from  1  to  4  rooms.  In  the  case  of  township  high 
schools  in  Class  A  the  median  number  of  rooms  occupied  by  township 
high  schools  which  have  no  building  is  4 ;  the  middle  50  per  cent  of  this 
group  of  schools  occupy  from  3  to  5  rooms.  Similarly  in  Class  B  in  the 
case  of  city  high  schools  the  median  number  of  rooms  occupied  by  city 
schools  which  have  no  separate  building  is  7.  The  number  of  rooms 
occupied  by  the  middle  50  per  cent  of  city  high  schools,  of  this  group  is 
from  5  to  7.  In  the  township  high  schools  in  this  group  the  median 
number  of  rooms  occupied  by  high  schools  having  no  separate  building  is 
6 ;  the  middle  50  per  cent  is  from  5  to  6. 

As  has  been  previously  stated,  most  of  the  preceding  tables  must 
be  interpreted  in  the  light  of  this  table.  That  is,  when  we  are  consid- 


69 


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0,        0 


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1U80  J9J 


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S 


I>          I   f-        CO. 


CO        CO 


2     : 


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rH-         td 


I  !   1 


-rf 


-     .    . 
° 


55        S     oS 


5    ^S 


CO<N  I  co     *4< 


:?§ 


OOrH         Oi         COi-C 


Oi         COi-C 


ering  the  maintenance  of  a  plant,,  the  operation  of  a  plant  or  any  other 
financial  consideration  whatever  that  has  to  do  with  the  plant,  it  is  nec- 
essary to  note  that  in  the  smaller  groups  the  high  school  plant  is  operated 
in  connection  with  the  elementary  school  plant  or,  in  other  words,  is  a 
part  of  the  elementary  school  plant.  Very  often  information  in  these 
smaller  groups  which  is  furnished  under  various  headings  is  incomplete 
and  somewhat  inaccurate  because  charges  which  should  be  made  against 
the  high  school  very  likely  are  entered  against  the  elementary  school,  and 
vice  versa.  Only  in  the  case  of  high  schools  which  have  a  separate  build- 
ing can  we  be  sure  of  securing  information  pertaining  to  the  high  school 
alone  and  not  complicated  with  the  finances  of  the  elementary  school 
below. 

In  treating  of  the  facts  shown  in  this  chapter  thus  far  certain  prin- 
ciples stand  out  very  definitely.  In  every  category  it  is  to  be  expected 
that  the  amount  of  money  invested  or  expended  varies  in  direct  propor- 
tion to  the  increase  in  enrollment.  The  township  high  schools  in  every 
case  have  more  money  invested  in  sites  and  buildings  than  the  city  high 
schools.  It  costs  more  to  maintain  and  operate  the  plant  in  the  township 
high  schools  than  in  the  city  high  schools.  The  township  high  schools 
are  more  completely  equipped  in  every  particular  than  the  city  high 
schools  except  one,  namely,  the  library. 

This  larger  expenditure  both  on  account  of  investment  and  current 
expense  on  that  part  of  the  township  high  schools  is  the  direct  outgrowth 
of  two  features  in  the  township  high  school  organization  which  char- 
acterizes it  as  a  unit  of  school  administration.  In  the  first  place,  the 
township  high  school  is  organized  to  cover  a  wider  range  of  territory  than 
the  ordinary  high  school  district,  thus  providing  a  wider  basis  of  taxation 
and  allowing  a  larger  accumulation  of  funds.  The  greater  resources  thus 
provided  enable  the  school  authorities  to  invest  larger  sums  of  money 
in  the  plant  and  to  give  more  adequate  financial  support  to  the  main- 
tenance and  operation  of  the  building  and  to  provide  greater  and  more 
varied  equipment  for  the  use  of  the  school.  The  other  factor  which  has 
a  definite  bearing  upon  this  situation  is  that  the  board  of  education  and 
the  supervising  officer  (the  principal)  give  specialized  attention  to  this 
one  unit  in  the  school  system,  whereas  the  conventional  school  district 
with  a  system  of  schools  extending  from  the  elementary  grades  through 
the  high  school  has  a  board  of  education  and  a  superintendent  whose  at- 
tention is  diffused  over  the  entire  system.  This  is  a  consideration  which 
will  come  up  for  more  particular  attention  at  a  later  point  in  this  study. 


71 


CHAPTER  IV. 


FINANCE. 

Expenditures  for  the  capital  account  as  discussed  in  the  preceding 
chapter  are  the  first  great  problem  in  financing  a  high  school  or  any  other 
important  enterprise  of  a  permanent  nature.  They  often  come  in  a 
large  volume  at  one  time.  On  the  other  hand,  current  expenses  are  a 
constant  problem. 

Boards  of  education  often  fail  to  realize  the  seriousness  or  extent 
of  this  problem.  The  finances  of  school  districts  large  and  small,  both 
elementary  and  secondary,  are  often  managed  in  a  hit  or  miss,  fashion 
without  any  preconceived  plan  or  policy.  There  is,  however,  a  growing 
feeling  among  educators  and  among  school  experts  who  give  their  atten- 
tion to  the  fiscal  side  of  education  that  the  business  interests  of  school 
systems  should  have  the  same  conscientious  attention  that  commercial 
organizations  demand.  In  order  to  accomplish  this,  it  is  necessary  to 
adopt  some  of  the  plans  in  common  use  in  commercial  life.  This  cannot 
be  accomplished  practically  without  the  adoption  of  proper  machinery 
for  studying  costs.  This  means  in  addition  to  the  adoption  of  an  ade- 
quate plan  the  organization  of  a  much  larger  clerical  force  than  is  now 
the  custom  in  school  systems.  A  commercial  institution  having  the  cor- 
responding size  and  importance  of  a  school  system  under  consideration 
would  have  a  much  larger  clerical  force  than  is  now  the  practice. 

On  the  financial  side  one  of  the  most  urgent  needs  for  the  school 
systems  is  the  adoption  of  an  annual  budget.  This  is  more  necessary  in 
the  school  enterprise  than  in  a  business  enterprise  because  there  are  so 
many  persons  and  departments  involved  in  the  demands  for  money,  and 
these  demands  are  not  as  thoroughly  integrated  as  is  often  the  case  in 
a  commercial  establishment. 

A  school  system  varies  from  a  commercial  enterprise  in  the  char- 
acter and  methods  of  its  income.  It  does  not  produce  a,  product  for  sale 
and  because  of  that  fact  people  are  often  blinded  to  the  fact  that  there  is 
a  product,  and  that  the  cost  of  that  product  must  be  analyzed.  Of  course, 
the  first  topic  in  cost  analysis  is  a  consideration  of  the  capital  account 
which  was  discussed  in  the  preceding  chapter.  In  a  commercial  estab- 
lishment the  capital  investment  in  the  plant  is  carefully  accounted  for 
and  the  depreciation  of  the  plant  and  equipment  are  charged  against  the 
income.  It  is  customary  to  allow  10  per  cent  depreciation  charge  for  the 
plant  itself  and  20  per  cent  depreciation  charge  for  equipment.  The 
reason  for  this  is  that  replacements  and  repairs  are  necessary.  They  are 
a  legitimate  charge  against  income  before  dividends  are  declared.  Hence 
it  is  impossible  to  figure  profits  or  to  figure  costs  unless  there  is  an 
adequate  depreciation  charge.  In  this  particular  only  should  the  finances 


72 

of  a  school  be  treated  differently  from  that  of  a  business  corporation. 
The  reason  for  this  is  that  the  product  of  the  school  system  is  not  ex- 
changed for  a  monetary  return  with  the  expectation  of  profit.  This  is 
best  managed  by  including  in  the  budget  each  year  an  appropriation  for 
maintenance  which  was  treated  in  the  last  chapter. 

An  analysis  of  current  expenses  involves  other  complicated  consider- 
ations. Under  what  heads  is  it  proper  that  we  should  analyze  current 
cost?  It  seems  that  early  in  the  consideration  of  this  topic  an  analysis 
based  upon  rather  large  subdivisions  will  be  most  valuable.  These  sub- 
divisions may  later  be  refined  and  the  investigation  become  more  minute. 
In  this  study  the  divisions  of  the  topic  are  those  shown  in  Form  2, 
namely,  General  Control,  Instruction,,  Operating  School  Plant,  Mainte- 
nance of  Plant,  Auxiliary  Agencies.  These  added  together  constitute 
the  total  of  current  expenses.  In  this  study  the  items  coming  under  the 
head  of  General  Control  and  Auxiliary  Agencies  have  not  been  tabulated 
for  the  reason  that  the  practice  in  reporting  seems  to  have  been  so  varied 
that  the  tabulation  would  not  have  been  highly  valuable.  However,  these 
items  together  with  the  other  items  are  included  in  the  tabulation  of  the 
total  current  costs  so  that  the  tabulation  on  the  matter  of  total  current 
expenses  does  represent  accurately  the  situation  with  reference  to  total 
current  expenses.  The  operation  of  school  plant  and  maintenance  of  the 
plant  were  discussed  in  the  preceding  chapter  in  order  to  give  complete- 
ness to  that  chapter.  These  topics,  however,  properly  belong  in  this 
chapter  also,  and  to  have  a  complete  understanding  of  this  chapter  the 
reader  should  refer  to  the  preceding  chapter  and  examine  the  tables  and 
graphs  covering  them  and  the  accompanying  ones.  They  are  also  indi- 
cated in  this  chapter  in  a  consideration  of  the  total  current  expenses. 
There  remain  for  detailed  discussion  in  this  topic  the  matter  of  instruc- 
tion, per  capita  cost,  assessed  valuation  of  the  districts,  and  rate  of  taxa- 
tion. 

Table  XXIV  exhibits  the  facts  reported  under  Item  13  of  Form  2, 
namely,  amount  of  annual  salary  earned  by  teachers. 

This  is  an  important  consideration,  as  it  shows  the  amount  unex- 
pended annually  for  teaching  stripped  of  all  other  financial  considera- 
tions. This  table  is  constructed  in  the  same  manner  as  heretofore.  City 
high  schools  and  township  high  schools  are  in  the  column  at  the  left, 
and  the  number  of  schools  in  each  group  are  shown  as  they  are  arranged 
according  to  the  various  amounts  of  money  that  they  expend  annually 
for  teaching.  For  example,  beginning  the  table  at  the  top  and  reading 
to  the  right,  there  are  27  city  high  schools  of  Class  A  expending  from 
$1  to  $1,000  for  instruction,  91  expending  from  $1,001  to  $2,000,  92' 
expending  from  $2,001  to  $3,000.  Similarly,  there  are  9  township  high 
schools  of  Class  A  expending  from  $1,000  to  $2,000,  and  so  forth.  Note 
that  there  are  altogether  97  township  high  schools  and  358  city  high 
schools  involved  in  this  calculation,  making  a  sum  total  of  455  high 
schools  which  are  studied  herein.  It  will  be  noted  that  there  are  5 
schools  in  the  State  which  spend-over  $50,000  annually  for  instruction. 
The  table  also  shows  the  average,  the  median,  the  first  quartile,  the  third 
quartile  and  the  quartile  deviation.  The  median  shows  what  is  probably 
the  most  representative  practice  in  each  of  the  groups  of  schools  consid- 


73 


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t^OO  CM.C 

I  II If 

»  oo"oT  co'oo 


ss 


S3  9 


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OOO'OSS-OOO'Oi* 


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ooo'sst-ioo'ost 


OOO'OZt-TOO'STl 


OOO'SIt-IOO'OI* 


CO       CM  "5    I  t»       tO  I 


OOO'OIS-OOO'GS 


000'6$-IOO'8$ 


000'8$-IOO'Z$ 


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000'Zt-IOO'9S 


000'9$-IOO'S$ 


ooo'et-ioo'i 


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ooo'et-ioo'st 


OOO'Stt-IOO'lt 


c2°>  18 


000 'It-It 


spoqosjo  jaqran^i 


MW   3 

W™     H 
^1* 


E 
501-O 


90.000 


8J.OOQ 


80.000 


75.000 


70,OOO 


55,000 


•Sb.ooo 


4-5:000 


40.000 


35.000 


3O.OOO 


e^.ooo 


20.000 


5.0OO 


0.000 


J 


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18,790 


M     ___._9_90>. 
.  .Szzq 


Figure  9— Annual  Expenditure  for 
Teaching.  The  high  schools  are  classified  at 
the  bottom  according  to  the  number  en- 
rolled. The  upright  bars  represent  the  total 
annual  expenditure  for  teaching  from  the 
first  quartile  to  the  third  quartile.  The  hol- 
low bars  represent  the  city  high  schools  and 
the  solid  bars  the  township  high  schools. 
M  represents  the  median  annual  expendi- 
ture in  each  case.  An  equalized  scale  of 
annual  expenditure  is  shown  at  the  left  and 
a  scale  of  the  medians  at  the  right. 


75 

ered.  A  school  which  falls  within  the  middle  50  per  cent  is  probably 
not  far  out  of  the  way  in  its  expenditure  for  instruction  as  compared  with 
the  other  institutions  in  the  State.  This  middle  50  per  cent,  of  course, 
is  shown  by  the  limits  of  the  first  quartile  and  the  third  quartile.  The 
facts  set  forth  in  Table  XXIV  are  shown  graphically  in  Figure  9,  and 
•Table  XXIV  should  be  studied  in  conjunction  with  Figure  9. 

Figure  9  shows  at  the  left  hand  an  equalized  scale,  and  at  the  right 
a  scale  of  medians.  It  will  be  noted  in  the  township  high  schools  in 
Class  D  that  the  median  expenditure  is  $18,790  per  year  and  that  the 
expenditures  of  the  middle  50  per  cent  of  these  schools  are  from  $15,025 
to  $27,150.  Now,  it  is  not  always  creditable  to  an  institution  that  it 
spends  a  smaller  amount  of  money  for  an  item  than  other  institutions  do. 
For  example,  for  instruction  it  will  be  seen  in  a  later  chapter  that  prac- 
tically all  of  the  schools  spend  too  small  an  amount  of  money,  but  it  is 
desirable  for  the  formulation  of  a  correct  financial  policy  and  for  the 
completing  of  an  annual  budget  that  an  institution  know  what  other 
institutions  of  its  class  and  size  do  in  this  respect. 

In  looking  over  this  table  and  the  graph  referred  to  it  will  be  seen 
that  the  expenditures  for  instruction,  as  would  be  expected,  increase 
directly  as  the  size  of  the  school  increases.  It  will  also  be  seen  that  the 
township  high  schools  in  every  case  expend  more  than  the  city  high 
schools.  It  will  also  be  noted  that  the  deviation  in  the  case  of  the  town- 
ship high  schools  is  greater  than  in  the  city  high  schools.  This,  of 
course,  represents  larger  experimentation  and  greater  difference  of  prac- 
tice in  handling  the  same  proposition  on  the  part  of  the  township  high 
schools. 

In  Table  XXV  is  shown  the  information  reported  in  43 -B  of  Form  2. 

This  shows  the  expenditures  of  the  various  schools  in  the  item  of 
the  salaries  of  teachers  giving  one-half  or  more  time  to  their  work. 
This  table  is  of  particular  value  in  that  it  shows  the  amount  of  money  ex- 
pended for  instruction  after  part-time  teachers,  superintendents  and 
supervisors  who  teach  less  than  half  time  are  eliminated.  In  other  words 
it  displays  the  amount  of  money  expended  for  full  time  instruction.  An 
examination  of  the  table,  however,  shows  the  same  relative  situation  re- 
garding the  expenditures  for  instruction  as  Table  XXIV.  A  school  wish- 
ing to  compare  itself  absolutely  in  the  matter  of  instruction  with  others 
of  its  class  can  do  so  with  the  satisfaction  that  all  unusual  matters,  such 
as  part-time  teaching,  have  been  eliminated. 

On  the  other  hand,  Table  XXVI  is  a  display  of  the  facts  regarding 
the  total  cost  of  instruction  reported  in  Item  43  of  Form  2.  In  this  is 
included  all  kinds  of  expenditures  for  instruction,  supervisors  and  prin- 
cipals who  teach  less  than  half  time,  teachers  and  principals  who  teach 
half  time  or  more,  text  books,  stationery,  supplies,  interest  on  teachers' 
orders,  tuition  of  transferred  pupils  paid  by  the  district,  in  fact,  all 
expenditures  which  may  properly  come  under  the  head  of  instruction. 

This  table  is  graphically  represented  by  Figure  10. 

If  we  examine  this  table  in  the  same  way  as  we  have  preceding  tables 
we  will  note  that,  for  example,  in  the  township  high  schools  of  Class  D 
the  median  total  cost  of  instruction  is  $22,844.  The  middle  50  per  cent 
of  schools  of  this  group  expend  from  $19,305  to  $27,706.  We  note  also 


76 


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<  *£-  4^  ^  £j 

Fig.  10. — Total  annual  cost  of  Instruction. 
The  high  schools  are  classified  at  the  bottom 
according  to  the  number  enrolled.  The  upright 
bars  represent  the  range  of  the  annual  cost  of 
instruction  from  the  first  quartile  to  the  third 
quartile.  The  hollow  bars  represent  the  city 
high  schools  and  the  solid  bars  the  township 
high  schools.  M  represents  the  median  total 
annual  cost  of  instruction  in  each  case.  An 
equalized  scale  of  annual  cost  is  shown  at  the 
left  and  a  scale  of  the  medians  at  the  right. 


that  here  as  before  the  township  high  schools  expend  larger  sums  of 
money  for  instruction  than  the  city  high  schools  and  that  the  deviation 
in  every  case  is  larger  in  the  township  high  schools  than  in  the  city 
high  schools. 

Perhaps  boards  of  education  and  school  executives  generally  will  be 
more  interested  in  the  tabulation  of  total  costs  than  in  the  various  items. 
This  is  shown  in  Table  XXVII  and  includes  not  only  the  items  which 
are  given  in  detail  in  this  and  in  the  preceding  chapter  but  all  other 
items  which  come  under  the  head  of  current  expenses. 

The  facts  shown  in  this  table  are  represented  graphically  in  Fig- 
ure 11. 

Looking  at  this  table  in  exactly  the  same  way  as  we  have  the  pre- 
ceding ones  we  note,  for  example,  in  Class  D  that  the  median  total  cur- 
rent costs  of  township  high  schools  in  this  group  is  $28,425.  The  middle 
50  per  cent  of  these  schools  spend  from  $23,975  to  $47,185.  The  devia- 
tion jn  the  case  of  township  high  schools  is  greater  than  in  the  city 
schools  in  every  case. 

As  was  indicated  in  the  preliminary  discussion  in  this  chapter,  there 
have  been  formulated  no  general  standards  of  costs  of  very  wide  accept- 
ance. Certain  studies  have  been  made  on  the  basis  of  the  cost  per  en- 
rollment; some  have  been  made  on  the  basis  of  the  cost  per  hour  of  in- 
struction; and  various  other  standards  of  costs  have  been  evolved.  Per- 
haps the  standard  which  would  show  the  best  results  and  give  informa- 
tion of  an  objective  character  that  could  be  followed  by  everybody  would 
be  the  per  diem  cost.  The  actual  number  of  days'  attendance  is  shown 
in  this  study  in  Table  LXII.  There  has  been  no  opportunity  in  the, 
present  investigation,  however,  to  tabulate  the  cost  on  this  basis.  We 
have  followed  the  more  common  custom,  and  have  calculated  the  per 
capita  cost  on  the  basis  of  enrollment.  This  is  found  by  dividing  the 
total  current  expense  in  each  individual  school  by  the  enrollment  reported 
from  that  school.  The  figures  thus  secured  are  displayed  in  Table 
XXVIII.  Table  XXVIII  is  illustrated  in  Figure  12. 

We  have  in  this  table  information  from  97  township  high  schools 
and  355  city  high  schools,  a  total  of  452  high  schools.  It  will  be  noted 
in  this  connection  that  there  are  13  city  high  schools  of  Class  A  in  which 
the  cost  per  capita  is  from  $21  to  $30;  there  are  41  in  which'  the  cost 
per  capita  is  from  $31  to  $40.  Note  particularly  that  although  there 
are  a  few  schools  of  Class  A  which  have  a  very  low  per  capita  cost  yet 
there  are  a  number  which  have  a  very  high  per  capita  cost.  There  are 
more  schools  of  Class  A  which  have  a  per  capita  cost  of  over  $100  than 
of  any  other  class.  Examining  the  medians  of  the  city  high  schools,  it 
will  be  noted  that  the  per  capita  cost  does  not  vary  to  any  large  extent. 
Class  B  costs  less  than  Class  A.  Classes  A,  B  and  C  are  very  close  to- 
gether. Class  E  is  the  most  expensive.  In  the  case  of  the  township 
high  schools  it  will  be  noticed  that  the  per  capita  cost  in  Class  A  is 
larger  than  in  Class  B  and  Class  C.  In  Class  D  of  the  township  high 
schools  the  per  capita  cost  rises  again,  and  is  at  its  highest  in  the  case 
of  Class  E.  In  both  kinds  of  schools  it  is  to  be  noted  that  Class  E 
has  the  greatest  per  capita  cost.  This  class  of  schools  could  practice 
economy  most  effectively  and  have  the  lowest  per  capita  cost,  but  they 


80 


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Fig.  11. — Total  current  costs.  The  high 
schools  are  classified  at  the  bottom  according 
to  the  number  enrolled.  The  upright  bars  rep- 
resent the  range  of  total  current  costs  from  the 
first  quartile  to  the  third'  quartile.  The  hollow 
bars  represent  the  city  high  schools  and  the 
solid  bars  the  township  high  schools.  M  repre- 
sents the  median  total  current  cost  in  each  case. 
An  equalized  scale  of  total  current  costs  is 
shown  at  the  left  and  a  scale  .of  the  median  at 
the  right. 


— 6  I  H  S 


TABLE  XXVIII— PER  CAPITA  COST— (FORM  2,  SUMMARY). 


A 

1 

o 

c3 

i 

43 

| 

55 

•r 

09 

-o 

i 

i 

a 

2 

ft 

! 

~ 

1 

~ 

1 

1 

c; 

I 

1 

8 

o 

£ 

1 

1 

"H 

C? 
| 

11 

fc 

y 

% 

1 

i. 

M 

% 

SI 

8 

•4 

1 

s 

H 

§S 

A 

CityH.S... 

Tin?! 

13 

41 

70 

65 

31 

?o 

8 

i 

$54.  16 

$50.65 

$41.66 

$59.  46 

$  8.90 

1-100 

Twp.  H.  S 

46 

1 

4 

c 

4 

11 

I 

9    80.47 

73.21    57.fift 

92.45 

17.40 









Total....-  

298 

13 

42 

74 

74 

35 

31 

13 

6 

10! 

B 

City  H.  S 

68 

2 

'?0 

28 

13 

6 

1 

45.37 

44.23 

36.30 

51.78 

7.74 

101-200 

Twp.  H.  S 

9? 

3 

6 

4 

1 

? 

67.93 

61.15 

53.25 

76.70 

12.73 

Total 

90 

3 

?.o 

29 

19 

11 

5 

1 



2 

c 

City  H.  S    . 

11 

1 

7 

3 

46.66 

43.85 

42.13 

55.59 

6.73 

201-300 

Twp.  H.  S  

13 

1 

2 

4 

5 

1 

58.70 

59.37 

48.17 

65.30 

8.57 

Total  

— 

2 

9 

7 

5 

— 



1 



D 

City  H  S 

q 

1 

4 

3 

1 

49.31 

48.39 

43.64 

55.85 

6.  11 

301-500 

Twp.  H.  S 

13 

1 

1 

4 

1 

1 

5 

87.32 

71.80 

66.22 

110.68 

22.22 

Total 

?? 

— 

1 

5 

4 

5 

1 

1 



5 

E 

City  H.  S 

7 

5 

3 

52.77 

53.62 

46.26 

56.29 

5.02 

501-Over 

Twp  H  S 

0 

2 

1 

94.48 

89.30 

87.69 

100.46 

9.39 

Total  

18 

- 

— 

7 

5 

a 

- 

?. 



1 

Total  CityH.S.... 
Total  Twp.  H.  S.  . 

355 
97 

1.-) 
1 

1 

114 
10 

89 
20 

41 

IS 

21 
16 

8 
9 

3 
4 

1 
17 

Grand  total  

452 

16 

65 

124 

109 

,->!> 

37 

17 

7 

18 

Figr.  12. — Per  capita  cost. 
The  high  schools  are  classified  at 
the  •  bottom  according  to  the 
number  enrolled.  The  upright 
bars  represent  the  range  of  per 
capita  cost  from  the  first  quar- 
tile  to  the  third  quartile.  The 
hollow  bars  represent  the  city 
high  schools  and  the  solid  bars 
the  township  high  schools.  M 
represents  the  median  per  capita 
cost  in  each  case.  An  equalized 
scale  of  per  capita  cost  is  shown 
at  the  left. 


83 

also  have  the  opportunity  and  they  choose  to  take  advantage  of  it  to  en- 
rich their  courses  of  study,  extend  their  electives  and  to  increase  their 
equipment.  Class  A  has  the  next  largest  per  capita  cost.  This  is  because 
of  their  meager  enrollment  and  consequent  small  classes.  This  offsets 
the  fact  that  their  teachers  have  smaller  salaries.  Following"  Classes  E 
and  A,  the  remaining  groups  in  the  decreasing  order  of  their  per  capita 
costs  are  D,  B,  and  C. 

As  a  generalization  upon  these  figures,  it  would  seem  that  city  high 
schools  can  probably  most  economical^  handle  their  students  and  yet 
provide  them  with  a  broad  system  of  electives  and  furnish  them  with 
excellent  equipment,  in  Classes  C  and  D.  It  seems  that  the  township 
high  schools  may  do  this  best  in  the  case  of  Class  C.  In  short,  Classes 
B,  C  and  D  seem  to  provide  opportunity  for  an  economical  administration 
of  high  schools.  The  facilities  which  they  provide  will  be  shown  in  an- 
other chapter. 

In  this  table,  as  in  the  preceding  ones,  it  is  seen  that  the  per  capita 
cost  in  the  township  high  schools  is  more  than  in  the  city  high  schools. 
Here  again  the  deviation  is  larger  in  the  township  high  schools  than  in 
the  city  high  schools,  in  every  group.  An  examination  of  any  individual 
group  may  be  undertaken  in  this  table  as  in  the  preceding  ones.  For 
example,  in  the  township  high  schools  of  Class  D  it  is  to  be  noted  that 
the  median  per  capita  cost  for  schools  for  this  group  is  $71. 80.  The 
per  capita  cost  of  the  middle  50  per  cent  of  schools  in  this  group  is  from 
$66.22  to  $110.68.  A  school  within  this  range  can  be  sure  that  it  is 
well  supported  in  its  practice  by  the  practice  of  schools  of  its  own  size 
and  standing. 

Expenditure,  however,  is  not  the  whole  of  the  financial  problem. 
School  boards  and  school  officials  generally,  are  often  in  hard  straits  to 
secure  the  necessary  income  to  conduct  their  schools  properly.  As  was 
noted  in  a  preceding  chapter,  probably  the  most  important  reason  for  this 
difficulty  is  the  fact  that  the  provisions  of  the  school  revenues  were 
originally  established  by  law  to  finance  elementary  schools  which  had  a 
relatively  simple  organization.  In  the  last  quarter  of  a  century  elemen- 
tary schools  have  become  very  complex  and  much  extensive,  and  in  addi- 
tion to  this  has  been  added  in  scores  of  communities  the  burden  of  sup- 
porting a  high  school.  High  school  education,  necessarily  because  of  the 
high  cost  of  instruction  and  the  expensive  buildings  and  equipment  de- 
manded, has  greatly  increased  the  burden  placed  upon  the  fiscal  resources 
of  the  districts  in  question.  Unfortunately  this  situation  has  not  been 
frankly  faced  by  legislatures,  and  in  many  communities  educational  in- 
terests languish  for  lack  of  funds.  One  of  the  great  benefits  of  the 
township  high  school  movement  in  the  State  of  Illinois  is  the  fact  that  it 
provides  an  adequate  solution  for  this  problem.  In  the  case  of  city  high 
schools  there  are  no  figures  which  show  the  proportion  of  the  tax  rate 
which  is  devoted  to  high  school  purposes,  hence,  even  were  the  figures 
available,  it  would  not  be  profitable  to  display  a  tabulation  of  the  assessed 
valuation  shown  in  the  various  city  high  school  districts.  This  has  some 
value,  however,  in  the  case  of  township  high  schools,  and  the  information 
is  given  in  Table  XXIX. 


84 


TABLE  XXIX— ASSESSED   VALUATION   OF  TOWNSHIP  HIGH    SCHOOL    DISTRICTS— 

(SPECIAL  REPORT). 


• 

A 

1-100 

B 

101-200 

C 
201-300 

D 

301-500 

E 
501-Over. 

Total. 

Number  of  schools 

40 

22 

11 

7 

4 

84 

Assessed  valuation— 
0-$    500  000 

7 

17 

$    500.001-  1,000.000 

14 

4 

18 

1,000,001-  1,500,000... 

17 

5 

1 

23 

1,500.001-  2,000,000 

2 

7 

4 

1 

14 

2,000,001-  2,500,000... 

3 

2 

la 

2  500,001-  3,000,000 

1 

2 

3 

3,000,001-  3,500,000... 

3  500,001-  4,000,000 

1 

1 

2 

4,000,001-  4,500,000... 

1 

1 

4  500  001-  5,000,000 

2 

2 

5,000,001-  Over  

1 

1 

3 

4 

9 

Total           

40 

22 

11 

7 

4 

84 

Average          

$    181,872 

$      62,308 

$    635,076 

$    856,760 

$10,423,175 

Median 

1  934,374 

1,657,236 

2,038,657 

4,909,936 

6,035,632J 

First  Quartile 

696,240^ 

1,125,084 

1,588,426 

4,295,346 

7,  802,  779  J 

Third  Quartile  

2,574,907 

2,  015,  534  J 

2,732,806 

7,088,148 

13,043,5704 

Quartile  Deviation  

938,333.25 

890,450i 

572,190 

2,792,802 

26,920,3954 

This  table  gives  the  assessed  valuation  of  84  township  high  schools. 

In.  this  table  the  side  heads  and  the  top  heads  are  reversed  from 
the  custom  followed  in  preceding  tables,  as  explained  in  Chapter  I. 
The  assessed  valuation  is  grouped  as  0  to  500,000,  500,001  to  1,000,000, 
the  number  of  high  schools  in  each  group  in  each  horizontal  column 
following  the  designation  of  the  group.  It  will  be  noted  that  the  valua- 
tion increases  as  to  the  size  of  the  school,  which  is  merely  another  way 
of  saying  that  the  enrollment  corresponds  in  a  broad  way  with  the 
wealth  of  the  community.  This  correspondence  is  not  entire,  however. 
It  will  be  noticed  that  the  median  assessed  valuation  of  the  schools  of 
Class  B  is  smaller  than  that  of  Class  A.  This  is  because  the  school  dis- 
tricts of  both  Class  A  and  Class  B  are  largely  rural  in  type,  and  this 
represents  a  chance  variation. 

In  Table  XXX  are  shown  the  tax  rates  for  township  high  school 
districts,  based  upon  the  returns  of  1915. 

The  law  provides  that  each  township  high  school  district  as  well  as 
every  other  school  district  in  the  State  may  assess  the  property  of  the  dis- 
trict at  the  rate  of  1%  per  cent  for  building  purposes  and  1%  per  cent 
for  educational  purposes.  It  will  be  noted  that  this  is  an  arbitrary 
division  of  the  school  funds.  It  was  not  originally  based  upon,  any 
scientific  determination  of  the  relative  needs  of  the  schools  of  the  State 
so  far  as  building  and  instruction  are  concerned.  This  is  one  of  the 
problems  that  ought  to  be  solved  by  a  scientific  study  of  school  finances. 
After  a  building  enterprise  has  been  successfully  carried  through  there 
is  no  reason  why  the  l1/^  Per  cent  should  be  the  rate  allowed  for  this  pur- 
pose. It  would  seem  proper  that  this  rate  should  be  very  much  lowered 
and  that  the  rate  for  educational  purposes  might  be  materially  increased. 
In  the  case  of  many  needy  districts  this  would  solve  many  financial  prob- 
lems. This  is  in  part  taken  care  of  by  recent  legislation,  which  allows 
the  people  by  special  vote  to  make  the  ratio  2  per  cent  for  educational 


85 


TABLE  XXX— TAX  RATES  1915— (SPECIAL  REPORT). 


A 

1-100 

B 

101-200 

C 

201-300 

D 

301-500 

E 
501-Over. 

Total. 

Total  schools 

29 

17 

11 

5 

4 

66 

Rate  for  educational  purposes— 

.  26-  .  50.  .  . 

1] 

4 

15 

51-    75 

10 

5 

5 

1 

.76-1.00  

5 

3 

3 

1 

12 

1.  01-1.  25 

1 

2 

2 

3 

1 

9 

1.  26-1.  50 

m 

3 

1 

2 

g 

• 

Total 

29 

17 

11 

5 

4 

66 

Average  

.63 

.79 

.91 

1.094 

1  09 

Median 

.53 

.70 

.79 

1  16 

1  17 

First  Quartile  

.455 

.52 

.70 

.875 

.91 

Third  Quartile 

.86 

1.23 

1.24 

Quartile  Deviation  

.465 

'  .355 

.54 

Total  schools 

14 

11 

g 

5 

4 

42 

Rate  for  building  purposes  — 
0-  .25  

4 

4 

13 

.  26-  .  50  

4 

3 

3 

1 

2 

13 

.51-  .75  

1 

1 

1 

5 

.76-1.00  

1 

1 

6 

1.01  1.25 

1 

1 

2 

1  26-1  50 

2 

1 

3 

Total  

14 

11 

g 

5 

4 

42 

Average 

59 

38 

39 

83 

51 

Median  

.315 

.28 

.28 

.83 

475 

First  Quartile 

.215 

20 

12 

455 

34 

Third  Quartile  

.975 

52 

.855 

Quartile  Deviation  

.380 

.16 

.367 

Total  schools 

39 

22 

11 

7 

4 

83 

Total  tax  rate— 
0-  .25 

1 

1 

.26-  .50  

8 

1 

9 

.  51-  .  75 

10 

4 

1 

15 

.  76-1.  00 

9 

7 

4 

20 

1.01-1.25  

5 

3 

3 

1 

1 

13 

1.26-1.50 

1 

4 

1 

1 

g 

1.  51-1.  75  

1 

1 

3 

1 

6 

1.  76-2.  00 

1 

2 

5 

2.  01-2.  25 

1 

1 

1 

3 

2.26-2.50  

1 

1 

2.  51-2.  75 

1 

1 

2.76-3.00  

1 

1 

Total  

39 

22 

11 

7 

4 

83 

Average 

87 

1  09 

1  20 

1  72 

1.60 

Median  

.77 

.89 

1.10 

1.68 

1.565 

First  Quartile 

.  51 

.765 

.91 

1.35 

1.315 

Third  Quartile  

1.08 

1.41 

1.27 

2.06 

1.90 

Quartile  Deviation 

.285 

.645 

.  18 

.355 

.30 

purposes  and  1  per  cent  for  building  purposes,  but  there  are  cases  when 
the  proportion  in  favor  of  educational  purposes  should  be  much  larger 
than  this.  In  fact,  there  is  not  much  justification  for  having  a  division 
in  the  law  at  all.  The  entire  matter  might  very  properly  be  left  to  the 
boards  of  education  to  determine,  that  is,  they  might  be  allowed  to  assess 
3  per  cent  on  the  total  assessed  valuation  and  divide  it  as  the  needs  of 
the  district  required.  If  there  were  adequate  and  special  supervision  of 
this  matter  providing  for  the  formation  of  budgets,  no  evils  could  grow 
out  of  a  plan  of  this  kind.  In  Table  XXX  the  rates  which  the  various 


86 

township  high  school  districts  are  assessed  for  township  high  school  dis- 
tricts are  shown,  also  the  rate  for  building  purposes,  and  the  sum  of 
the  two  or  the  total  tax  rate.  In  this  table  the  township  high  schools 
classed  according  to  enrollment  are  shown  in  the  first  horizontal  col- 
umn at  the  top.  In  the  vertical  column  to  the  left  is  shown  a 
grouping  for  the  tax  rates.  For  example,  the  figures  0-25  indicate 
the  tax  range  from  0  to  25  cents  on  the  dollar;  the  figures  26-50 
indicate  the  tax  range  from  26  cents  to  50  cents  on  the  dollar.  Bead- 
ing the  table  from  left  to  right  there  are  11  schools  of  Class  A 
whose  tax  rate  for  educational  purposes  is  26  cents  to  50  cents  on  the 
dollar;  4  in  Class  B  whose  rate  for  educational  purposes  is  26  cents 
to  50  cents  on  the  dollar,  etc.  In  looking  at  the  rate  for  educational 
purposes  it  will  be  noted  that  schools  of  Class  B  and  Class  C  have  nearly 
the  same  rate,  namely,  70  cents  in  the  case  of  Class  B  and  79  cents  in 
the  case  of  Class  C.  Class  D  and  Class  E  have  also  nearly  the  same 
rate,  $1.16  in  the  case  of  Class  D  and  $1.17  in  the  case  of  Class  E.  It 
will  be  noted  by  an  examination  of  this  table  that  11  districts  in  Class 
A  have  a  tax  rate  of  only  from  26  cents  to  50  cents.  There  is  a  total 
of  9  schools  which  have  a  rate  of  $1.26  to  $1.50. 

There  is  quite  a  good  deal  of  variation  in  the  rate  for  building 
purposes.  The  median  in  Class  A  is  31%  cents.  In  the  cases  of 
Class  B  and  Class  C  it  is  28  cents;  in  Class  D,  83  cents;  in  Class 
E,  47i/2  cents. 

Perhaps  the  total  tax  rate  represents  the  condition  more  thor- 
oughly. Examining  this  table,  it  is  to  be  noted  that  there  are  15  schools 
which  have  a  tax  rate  of  only  51  cents  to  75  cents,  in  fact,  most  of  the 
schools  have  a  total  tax  rate  of  less  than  $1.00.  The  truth,  however, 
is  that  in  the  case  of  township  high  schools  the  boards  do  not  use  their 
full  taxing  power.  Looking  at"  the  bottom  of  the  table,  it  will  be  seen 
that  the  median  total  tax  rate  in  the  case  of  Class  A  is  77  cents,  and 
that  50  per  cent  of  the  schools  in  Class  A  expend  only  from  51  cents 
to  $1.08.  In  Class  B  the  median  is  89  cents,  and  the  middle  50  per  cent 
expend  only  from  76!/2  cents  to  $1.41.  In  the  case  of  Class  C  the 
median  total  tax  rate  is  $1.10,  the  middle  50  per  cent  expend  only  from 
91  cents  to  $1.27,  and  so  on  throughout  the  table. 

The  facts  shown  in  Table  XXX  are  shown  graphically  in  Fig- 
ure 13. 

The  relative  situation  in  the  various  groups  is  shown  in  this  graph. 
As  heretofore,  an  equalized  scale  is  shown  at  the  left  and  a  scale  of 
medians  at  the  right. 

In  this  chapter  the  current  expenses  of  the  high  schools  in  the  State 
are  studied  in  detail.  It  is  found  that  these  expenses  increase  directly 
as  to  the  enrollment.  It  is  also  found  that  the  township  high  schools 
expend  more  in  the  various  groups  than  the  city  high  schools  do.  Here 
as  in  the  preceding  chapters  it  is  found  that  the  deviation  is  greater  in 
the  township  high  schools  than  in  the  city  high  schools.  It  is  also 
found  in  the  case  of  the  tax  rate  that  the  township  high  schools  do  not 
come  anywhere  near  exhausting  their  resources.  It  is  also  shown  that 
a  division  of  the  total  tax  rate  in  equal  parts,  for  building  purposes  and 
for  educational  purposes,  is  an  illogical  division  and  that  educators 


87 


should  address  themselves  to  the  task  of  securing  remedial  legislation 
on  this  point. 

It  is  clear  from  the  foregoing  considerations  that  the  township  high 
school  provides  in  a  financial  way  an  adequate  plan  for  taking  care  of  the 
urgent  burdens  which  have  in  the  last  quarter  of  a  century  grown  up  in 


Fig.  13. — Total  Tax  Rates.  The 
township  high  schools  are  classified  at  the 
bottom  according  to  the  number  enrolled. 
The  solid  upright  bars  represent  the  total 
tax  rates  in  township  high  schools  from 
the  first  quartile  to  the  third  quartile. 
M  represents  the  median  total  tax  rate 
in  each  case.  An  equalized  scale  of  the 
total  tax  rates  is  shown  at  the  left  and 
a  scale  of  the  median  at  the  right. 


2JO. 
2.00 
l.<90 

MP_ 

1.70 

|.t>0 


(.so 
i. 4o 

1.30 


MO 
j.QQ 
0.90 


0.80 
0.70 
O.feO 

o.^b 

O.40. 


•n 


I.JO 


connection  with  the  management  of  secondary  education.  Eemedial  leg- 
islation should  put  the  city  high  schools  on  the  same  basis,  or  at  least  a 
consistent  policy,  giving  adequate  financial  support,  should  be  provided 
for  all  of  the  high  schools  in  the  State. 


88 


CHAPTER  V. 


COURSE  OF  STUDY. 

It  is  not  the  purpose  of  the  present  chapter  to  go  into  detail  in  the 
matter  of  investigating  the  curriculum  of  the  high  schools  of  the  State. 
It  is  rather  to  discover  the  situation  with  reference  to  prescribed  and 
elective  courses,  the  frequency  and  breadth  of  the  vocational  courses,  and 
to  note  the  relative  equipment  of  the  various  high  schools  as  to  the 
opportunities  they  provide  in  elective  and  vocational  courses.  It  will  be 
the  plan  to  find  out  what  the  practice  is  in  the  township  high  schools  of 
the  various  sizes. 

In  the  pursuit  of  these  ends,  the  first  topic  for  consideration  is  the 
number  of  units  required  for  graduation.  This  information  is  tabulated 
in  Table  XXXI,  which  is  derived  from  Item  47  of  the  Approval  Blank. 

The  sizes  and  kinds  of  schools  are  shown  at  the  left  of  the  table.  It 
will  be  noted  that  there  is  one  column  devoted  to  the  total  number  of 
schools,  another  to  the  schools  omitted,  and  still  another  to  schools  report- 
ing. This  information  is  reported  in  the  form  of  units.  It  will  be  noted 
that  there  is  one  vertical  column  headed,  Less  than  12,  another  12,  an- 
other 13,  and  so  on.  The  table  when  read  from  left  to  right  shows  that 
in  the  city  high  schools  of  Class  A  there  is  one  that  requires  less  than 
12  units  for  graduation,  there  are  10  which  require  12  units  for  gradua- 
tion, there  are  2  which  require  14  units  for  graduation,  and  so  on 
throughout  the  table.  It  will  be  noticed  in"  this  connection  that  there  is 
also  a  percentage  column  in  all  of  the  various  groups.  For  example, 
there  are  187  city  high  schools  of  Class  A  which  require  16  units  for 
graduation,  which  is  81.65  per  cent  of  the  number  of  schools  reporting. 
Noticing  the  figures  in  the  grand  total,  there  are  444  schools  which  report 
on  this  section  of  flie  Approval  Blank.  That  is,  of  444  schools  on  this 
section  of  the  Approval  Blank,  Class  D  of  the  Curriculum,  there  are  418 
schools  which  report  011  this  item.  The  percentages  in  each  case  are 
based  upon  the  total  number  of  schools  reporting  on  this  section. 

An  examination  of  this  table  shows  very  clearly  that  the  city  high 
schools  and  the  township  high  schools  are  quite  uniform  in  the  number  of 
units  required  for  graduation.  This  is  not  only  true  in  the  schools  of  the 
different  sizes  but  it  is  also  true  in  the  totals.  For  example,  there  are 
262  city  high  schools  which  require  16  units  for  graduation  or  79.63  per 
cent  of  all  of  the  city  high  schools  reporting  on  this  section.  There  are 
73  township  high  schools  requiring  16  units  for  graduation  or  82.02  per 
cent  of  all  of  the  township  high  schools  reporting  on  this  item.  The 
total  result  is  that  a  little  over  8.0  per  cent  of  all  of  the  high  schools  of 
the  State  require  16  units  for  graduation.  It  is  to  be  noted,  however, 


89 


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2    S§ 


uaqran^ 


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OS  00     I    OS 


than 
nits. 


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CO         CO  CD 

35    SJiS 


22 


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COO 


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og      coco 


S    S5S 


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aw    o   MW    -s    a35    o  OH  I 

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90 

that  a  little  over  13  per  cent  require  15  units  for  graduation,  and  a  little 
over  2  per  cent  require  17  units  for  graduation. 

Obviously  the  nextx topic  to  consider  after  noting  the  number  of 
units  that  are  required  for  graduation  is  to  discover,  if  possible,  the 
number  of  these  units  which  are  prescribed.  This  information  was  col- 
lected under  Item  48  of  the  Approval  Blank,  and  is  displayed  in  Table 
XXXII. 

The  distribution  of  the  schools  as  to  kinds  and  sizes  is  shown  at  the 
top  of  the  table ;  the  distribution  of  units  at  the  left  side.  In  this  report 
also  the  total  number  of  schools  which  are  reporting  in  this  Section  D 
on  the  curriculum  is  given.  A  horizontal  column  is  also  included  for 
schools  omitted. 

It  will  be  noted  that  in  the  city  schools  of  Class  A  there  are  4  high 
schools  which  prescribe  only  4  units.  There  are  2  which  prescribe  5 
units,  and  thus  the  table  is  read  throughout.  In  this  the  same  as  in  the 
others  the  percentages  are  calculated,  that  is,  noting  that  there  are  14  city 
high  schools  of  Class  A  which  require  9  units  for  graduation,  it  is  seen 
that  6.51  per  cent  of  the  schools  of  this  class  require  9  units  for  gradua- 
tion. That  is,  this  percentage  is  based  on  the  number  of  schools  report- 
ing on  this  item.  From  this  table  the  median,  first  quartile  and  third 
quartile  are  calculated.  A  glance  at  the  table  thus  constructed  shows 
that  as  the  size  of  the  school  increases  the  number  of  prescribed  units 
decreases.  For  example,  13  is  the  median  requirement  of  units  in  the 
schools  of  Class  A,  9  in  Class  B,  8  in  Class  C,  7  in  Classes  D  and  E. 
It  will  also  be  seen  that  the  township  high  schools  prescribe  in  the 
smaller  schools  such  as  Classes  A  and  B  a  smaller  number  of  units.  In 
the  light  of  other  information  which  we  have  accumulated  in  other 
parts  of  this  study,  it  is  very  likely  that  the  township  high  schools  in 
this  case  are  able  to  prescribe  a  smaller  number  of  units  because  of  the 
larger  number  of  courses  that  they  can  offer  and  their  larger  facilities  in 
teaching  force. 

The  next  inquiry  following  upon  the  number  of  units  that  are  pre- 
scribed is  to  discover  what  these  prescribed  units  are.  This  is  reported 
in  Item  50  of  the  Approval  Blank  and  is  collected  in  Table  XXXIII. 

As  previously  suggested,  there  are  444  schools  making  report  on  this 
section.  On  this  item  the  number  of  schools  which  are  omitted  in  each 
case  is  shown  in  a  separate  column,  and  the  number  of  schools  reporting 
on  this  item  is  shown  in  still  another  column.  The  percentage  of  schools 
omitted  and  the  percentage  of  schools  reporting  this  item  are  also  shown. 
This  percentage  is  valuable  in  showing  what  proportion  of  the  schools 
give  the  information,  and  we  thus  have  a  definite  notion  as  to  the  value 
of  the  information  submitted. 

It  will  be  seen  that  45  per  cent  of  the  schools  in  the  State  have 
reported  on  this  item,  that  is,  there  are  200  high  schools.  This  is  suffi- 
cient to  give  a  satisfactory  body  of  knowledge  on  which  to  base  conclu- 
sions. 

Another  column  is  provided  in  which  the  total  number  of  units  pre- 
scribed is  given.  This  information  is  tabulated  for  each  of  the  large 
groups  of  subjects  usually  taught  in  high  school,  namely,  English, 
Mathematics,  Language,  History,  Science.  In  the  case  of  History,  for 


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example,  those  courses  which  are  definitely  related  to  History  are  in- 
cluded in  this  general  head,  that  is,  such  subjects  as  Civics  and  Industrial 
History.  History  signifies  in  addition  to  its  own  proper  courses  such 
course  as  Industrial  History,  Civics,  etc.  Language  means  foreign  lan- 
guage, Latin,  French,  German,  etc.  The  topics  which  would  not  be 
included  properly  under  these  various  major  heads  are  tabulated  separ- 
ately under  the  caption  "Other  Subjects." 

Under  each  of  these  various  captions,  vertical  columns  are  pro- 
vided indicating  the  number  of  units,  for  instance,  yz  unit,  1  unit,  1% 
units,  and  so  forth.  Opposite  these  in  horizontal  columns  the  number 
of  schools  which  require  the  units  indicated  are  given,  and  next  to  that 
the  percentage  of  schools  which  require  the  number  of  units  indicated  is 
shown.  For  example  in  English  76  city  high  schools  or  83.5  per  cent 
city  high  schools  of  Class  A  require  four  years  of  English ;  nineteen  high 
schools  or  73.07  per  cent  of  township  high  schools  of  Class  A  require 
four  years  of  English  and  so  on  throughout.  These  percentages  are 
based  upon  the  number  of  schools  reporting  this  item. 

Examining  the  portion  of  the  table  devoted  to  English,  72.5  per  cent 
of  all  the  schools  in  the  State  require  four  years  of  English;  26.5  per 
cent  require  three  years  of  English.  This  policy  is  very  definite,  as  the 
table  shows:  Another  thing  that  is  noticed  in  connection  with  the  En- 
glish prescription  is  that  as  the  school  is  smaller  there  is  a  greater  per- 
centage of  the  schools  which  require  four  years.  This  is  very  likely  due  to 
the  fact  that  the  smaller  schools  cannot  provide  a  wide  range  of  electives 
and,  hence,  require  a  larger  percentage  of  such  subjects  as  English, 
Mathematics,  and  so  on.  A  negligible  number  of  the  schools  of  the 
State  (.5  per  cent  of  them)  make  no  prescription  in  English. 

Under  the  head  of  Mathematics  it  will  be  noted  that  the  small 
schools  in  large  numbers  require  2%  and  3  years.  The  explanation  here 
is  similar  to  that  noted  under  the  head  of  English.  The  small  schools 
do  not  have  a  large  range  of  electives  and,  hence,  must  prescribe  the 
academic  subjects  which  they  are  required  to  teach.  In  Class  A  26.49 
per  cent  of  the  schools  require  2%  units,  32.47  per  cent  require  3  units. 
There  is  a  pretty  definite  tendency  throughout  the  groups  of  schools  to 
require  2  units,  in  fact,  30.5  per  cent  of  all  the  schools  in  the  State  re- 
quire 2  units,  and  21  per  cent  require  2%  units.  A  large  number  of 
schools  (20.5  per  cent  of  them)  make  no  requirement  in  Mathematics. 

Under  the  head  of  History  we  note  -that  35  per  cent  of  the  schools 
of  the  State  have  no  prescribed  units  in  History.  Where  there  is  a  pre- 
scription it  is  more  likely  to  be  2  units,  that  is,  there  are  32  per  cent  of 
the  schools  in  the  State  requiring  2  units;  19.5  per  cent  require  1  unit. 

In  Language  a  majority  of  the  schools  do  not  prescribe  any  work, 
In  case  there  is  a  prescription  it  is  more  likely  to  be  2  units,  as  19.5  per 
cent  of  the  schools  of  the  State  require  two  years  of  work. 

Where  Science  is  required,  the  most  frequent  practice  is  to  require 
2  units.  Of  the  schools  of  the  State  23.5  per  cent  require  2  units.  A 
comparatively  Ijarge  number  require  1  unit,  that  is  17  per  cent  of  the 
total,. but  a  third  of  the  schools  of  the  State  do  not  require  any  Science. 

— 7  I  H  S 


98 

Under  the  head  of  Other  Subjects  it  will  be  seen  that  there  is  a 
straggling  tendency  to  require  some  other  subjects  besides  the  preceding 
ones. 

There  does  not  seem  to  be  any  uniform  practice  as  distinguishing 
city  high  schools  from  township  high  schools  in  the  kinds  of  subjects 
prescribed. 

The  information  collected  under  Item  50  of  the  Approval  Blank  is 
displayed  in  another  way  in  Table  XXXIV. 

In  this  table  are  shown  the  total  number  of  units  prescribed  in  the 
various  sizes  and  kinds  of  schools.  In  addition  to  this  separate  columns 
show  the  total  number  of  units  prescribed  in  each  of  the  various  groups, 
that  is,  the  total  number  prescribed  in  English,  Mathematics,  etc.  The 
percentage  of  each  of  these  various  groups  based  upon  the  total  pre- 
scribed groups  is  also  shown.  For  example,  in  city  high  schools  of  Class 
A  the  total  number  of  units  prescribed  in  all  of  these  schools  is  1,062%. 
Of  these  351  are  prescribed  in  English,  228  are  prescribed  in  Mathe- 
matics. The  ratio  that  the  prescribed  units  in  English  bears  to  the  total 
prescribed  units  is  33.03  per  cent.  The  same  for  Mathematics  is  21.45 
per  cent.  In  a  similar  manner  the  table  is  read  throughout. 

By  referring  to  the  total  figures  shown  at  the  bottom  of  the  table, 
it  is  readily  seen  that  the  order  in  which  the  schools  of  the  State  pre- 
scribe these  various  groups  is  English,  Mathematics,  Science,  History, 
Language,  Other  Subjects.  Of  all  of  the  units  prescribed  36.69  per  cent 
are  in  English,  22.61  per  cent  of  all  the  units  prescribed  are  in  Mathe- 
matics, and  so  forth.  This  same  order  is  also  preserved  when  we  examine 
the  totals  for  city  high  schools  and  township  high  schools  separately 
except  that  in  the  township  high  schools  Science  and  History  are  re- 
versed. 

The  information  in  this  table  is  shown  graphically  in  Figure  14. 
In  Figure  14  the  first  column  at  the  left  shows  the  subject  under  consid- 
eration. The  second  column  shows  the  size  of  the  school  in  each  case. 
The  third  column  shows  the  percentage  which  the  number  of  units  pre- 
scribed in  each  subject  bears  to  the  total  number  of  units  prescribed. 
For  example,  at  the  top  of  the  graph  it  is  noted  that  33.03  per  cent  of 
the  total  prescribed  units  are. in  English  in  the  case  of  the  city  high 
schools;  36.46  per  cent  of  the  total  prescribed  units  are  in  English  in 
the  case  of  the  township  high  schools.  The  prescribed  units  in  the  city 
high  schools  are  represented  graphically  by  the  hollow  bars;  the  pre- 
scribed units  in  the  township  high  schools  are  shown  by  the  solid  bars. 
The  order  in  which  these  various  subjects  are  required  stands  out  very 
clearly,  as  stated  above,  in  an  examination  of  this  graph. 

Looking  at  the  graph  in  more  detail  it  appears  very  readily  that  En- 
glish is  required  to  a  larger  extent  in  the  city  high  schools  than  in  the 
township  high  schools. 

In  Mathematics  the  township  high  schools  prescribe  more  units  in 
Classes  A,  B  and  E.  In  Classes  C  and  D  they  prescribe  less. 

In  the  case  of  Science  the  township  high  schools  prescribe  a  less  num- 
ber of  units  in  Class  A  and  Class  E.  They  prescribe  more  in  Classes  B 
and  D,  and  practically  the  same  amount  in  Class  C. 


99 


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100 


Fig.  14. — Prescribed  units. — Dis- 
tributed as  to  enrollment.  In  the  ver- 
tical oblong  spaces  comprising  the  first 
vertical  column  are  shown  the  number 
of  the  question  in  Form  2  from  which 
the  information  is  derived  and  subject 
represented  in  each  respective  section 
of  the  graph.  The  second  vertical 
column  in  each  section  shows  the 
classification  of  the  schools  based  on 
the  enrollment.  The  third  vertical  col- 
umn shows  the  percentage  which  the 
number  of  units  prescribed  in  .each 
subject  bears  to  the  total  number  of 
units  prescribed.  The  horizontal  bars 
represent  this  percentage  in  each  case. 
The  hollow  bars  represent  the  city 
high  schools  and  the  solid  bars  the 
township  high  schools. 


In  History  the  township  high  o^meiore  n 
every  case  with  the  exception  of  Class  B.  '  This  information  is  thrown  up 
in  still  another  form  in  graph  15,  in  which  the  total  prescribed  units  arc 
shown.  The  subjects  are  shown  in  the  second  column  and  the  percentages 
in  the  third.  The  graphs  can  best  be  read  as,  for  example,  36.42  per  cent 
of  the  total  prescribed  units  in  the  city  high  schools  are  in  English;  37.59 
per  cent  of  the  total  prescribed  units  in  the  township  high  schools  are  in 
English.  These  facts  are  shown  graphically  in  that  the  percentage  for 
city  high  schools  is  represented  by  the  hollow  bar,  and  the  percentage  for 
the  township  high  schools,  by  the  solid  bar.  It  is  very  clear  that  the 
township  high  schools  require  more  English  and  more  Mathematics  than 
the  city  high  schools.  They  require  less  Science  and  Language.  The 
requirement  in  History  is  practically  the  same. 

An  obvious  corollary  to  the  number  of  units  that  are  prescribed  in 
the  various  subjects  is  the  number  of  elective  units. 


Fig.  15. — Prescribed  Units. — Totals. 
In  the  first  vertical  oblong  space  at 
the  left  is  shown  the  number  of  the 
question  in  Form  2  from  which  the  in- 
formation is  derived  and  the  subject  of 
the  graph.  The  second  vertical  column 
shows  the  percentage  which  the  num- 
ber of  units  prescribed  in  all  the 
schools  of  a  given  group  in  each  sub- 
ject bears  to  the  total  number  of 
units  prescribed  in  the  given  group. 
The  horizontal  bars  represent  their 
percentage  in  each  case.  The  hollow 
bars  represent  the  city  high  schools 
and  the  solid  bars  represent  the  town- 
ship high  schools. 


This  information  was  collected  under  Item  49  of  the  Approval  Blank 
and  is  collated  in  Table  XXXV. 

In  this  table  the  sizes  and  kinds  of  schools  are  shown  at  the  top  of 
the  table.  The  total  number  of  schools,  furnishing  information  on  this 
section  is  444.  There  is  also  a  column  for  the  schools  omitted  and  the 
schools  reporting,  with  the  percentage  calculated  in  each  case.  In  the 
body  of  the  table  is  distributed  the  number  of  schools  in  each  .kind  and 
class  offering  a  certain  number  of  electives.  For  example,  in  city  high 
schools  of  Class  A  there  are  7  which  offer  no  electives,  which  is  4.72  per 
cent  of  the  number  of  schools  reporting  on  this  item.  There  are  6  schools 
which  offer  1  elective,  which  is  4.05  per  cent  of  the  schools  reporting  on 
this  item.  In  a  similar  manner  the  table  is  read  throughout. 

At  the  bottom  of  the  table  the  median,  first  quartile  and  third  quar- 
tile  are  calculated.  An  examination  of  this  part  of  the  table  shows  that 
the  smaller  the  school  the  smaller  the  number  of  electives  offered.  The 
median  number  of  electives  in  city  high  schools  of  Class  A  is  4 ;  Class  B, 
6;  Class  C,  7 ;  Class  D,  9.  This  is  due  to  the  fact  that  the  smaller  high 
schools  do  not  have  the  teaching  force  or  the  equipment  to  offer  a  large 


102 


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CO  r-l  C^  r-l         1-HrH 


103 


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OO    1C  IM  O*  O  rH  CO  O  O5  CO  1-1  rH  IO  <N  Oi  OJ  CO 

ooo5      co  co  >-H  t^  co  06  o5 1-5  o  co  «s  e4  T-H    '    *    * 
N£-      <N  c4 -<  •*  co  o  o  r^  co  06  ij5  <N  r-5  nS 

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Ills  '  '  '  '         '  "  '  '  •"-'•- 


104 

-number  of  electives.  It  will  also  be  noted  that  the  township  high  schools 
•offer  a  larger  number  of  electives  than  the  city  high  schools.  For  ex- 
ample, in  Class  A  the  median  number  of  electives  in  the  township  high 
schools  is  5  whereas  the  median  number  of  electives  in  the  city  high 
schools  in  the  corresponding  group  is  4.  An  examination  of  the  other 
groups  shows  the  same  situation,  except  that  in  Class  D  the  township 
high  schools  and  the  city  high  schools  do  not  vary  largely  in  this  respect. 

Following  up  this  same  line  of  inquiry,  it  is  interesting  to  note  how 
many  courses  are  offered.  In  neither  of  these  blanks  was  the  informa- 
tion shown  in  such  form  that  the  number  of  units  in  each  subject  offered 
could  be  tabulated.  The  closest  approach  to  this  was  the  high  school 
courses  offered  on  the  first  page  of  Form  2.  The  question  is  asked  in  this 

form,  "High  School  Courses  offered  indicate  by  X  and  give 

length."  Under  this  head  is  a  small  table  with  the  names  Academic, 
Commercial,  Technical  (M.  T.),  Agriculture,  and  Domestic  Economy, 
with  a  space  for  the  number  of  years  for  each  of  these  courses. 

On  cursory  examination  of  the  material  provided  in  this  space  it 
would  seem  that  this  would  not  give  us  very  definite  information  yet  a 
complete  tabulation  of  it  does  give  information  that  is  very  dependable 
for  comparative  purposes.  It  is  all  the  more  dependable  because  all  of 
the  high  schools  (457  of  them)  report  on  this  item.  This  information 
is  collected  and  tabulated  in  Table  XXXVI. 

In  this  table  the  size  and  kinds  of  schools  are  shown  at  the  top  of  the 
table.  Below  this  portion  of  the  table  is  a  horizontal  column  for  the 
number  and  percentages  of  schools  offering  one  year,  for  example  of  com- 
mercial work,  the  number  and  percentage  offering  two  years,  and  so  on 
up  to  and  including  four  years.  Then  following  this  there  is  a  column 
for  the  total  number  of  schools  offering  commercial  work.  A  similar  col- 
umn is  provided  for  each  of  the  other  subjects. 

In  addition  to  the  columns  mentioned  there  is  a  horizontal  column 
for  the  total  number  of  }^ears  possible  to  offer  high  school  work.  This  is 
found  by  multiplying  the  number  of  schools  by  four.  For  example,  there 
are  254  city  high  schools  of  Class  A,  hence,  there  are  1,016  possible  years 
of  work  in  this  group  of  high  schools.  Below  this  column  is  the  total 
number  of  years  commercial  work  is  offered.  For  example,  in  city  high 
schools  of  Class  A  there  are  79  years  of  commercial  work  all  told  offered 
in  this  group  of  schools.  The  next  column  shows  the  percentage  of  com- 
mercial work  based  upon  the  total  time  possible,  that  is,  79  years  of 
commercial  work  offered  is  7.8  per  cent  of  1,016,  the  total  time  possible. 
This  method  is  followed  in  the  case  of  every  subject  tabulated,  and  for  a 
proper  reading  of  this  table  it  is  important  that  this  fact  be  remembered. 

The  information  comprised  in  Table  XXXVI  is  shown  graphically 
in  Figures  16,  17  and  18. 

The  first  fact  that  is  to  be  noted  in  an  examination  of  this  table  is 
that  the  number  of  years  of  academic  work  offered  is  exactly  the  same  in 
all  of  the  various  groups  of  schools.  Looking  at  the  table  more  in  detail, 
we  note  that  in  Class  A  in  commercial  work  city  high  schools  tend  to 
offer  one  year  and  the  township  high  schools  two  years.  This  information 
is  found  by  noting  the  percentage  of  schools  that  offer  the  various  amounts 


105 

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of  work.  In  Class  B  both  city  high  schools  and  township  high  schools 
in  larger  proportion  offer  four  years.  In  Class  C  both  city  high  schools 
and  township  high  schools  in  larger  proportion  offer  four  years.  In 
Class  D  city  high  schools  in  larger  number  offer  four  years,  and  township 
high  schools  two  years.  In  Class  E  the  larger  proportion  of  both  town- 
ship high  schools  and  city  high  schools  offer  four  years.  The  total  result 
is  that  the  township  high  schools  offer  the  largest  amount  of  commercial 
work  in  every  class  except  Class  E. 

In  technical  work  the  largest  proportion  of  city  high  schools  offor 
two  years ;  township  high  schools,  four  years.  In  Class  B  the  largest  pro- 
portion of  city  high  schools  offer  two  years,,  and  the  township  high  schools 
in  almost  equal  number  offer  two  years  and  four  years.  In  Class  C  the 
city  high  schools  offer  two  years  in  larger  proportion  and  the  township 
high  schools  four  years.  In  Class  D  both  city  and  township  high  schools 
in  larger  proportion  offer  two  years.  In  Class  E  both  groups  of  schools 
in  larger  proportion  offer  four  years.  It  will  be  noted  that  in  technical 
work  the  tendency  is  to  offer  either  two  years  or  four  years  of  the  work. 
In  this  subject  the  township  high  schools  offer  the  largest  amount  of  work 
in  every  case  except  Class  E. 

In  Agriculture  in  Class  A  the  township  high  schools  in  larger  num- 
ber offer  one  year  and  the  city  high  schools  two  years.  In  Class  B  the 
largest  percentage  in  each  group  offer  one  year.  In  Class  C  city  high 
schools  offer  one  year  in  larger  proportion  and  the  township  high  schools 
offer  two.  In  Class  D  the  city  high  schools  are  evenly  distributed  in 
their  offerings  of  one,  two  and  four  years.  The  township  high  schools 
in  larger  proportion  offer  one  year.  The  total  situation  in  this  group 
is  that  the  tendency  is  to  offer  one  and  two  years  in  Agriculture,  and  the 
township  high  schools  offer  more  in  every  instance  except  in  Class  D. 

In  Domestic  Science  the  tendency  in  both  city  and  township  high 
schools  is  to  offer  two  years.  In  Class  B  the  city  high  schools  in  larger 
proportion  offer  two  years  and  the  township  high  schools  four  years.  In 
Class  C  the  larger  proportion  of  city  high  schools  offer  two  years  and  the 
township  high  schools  four  years.  In  Class  D  the  city  high  schools  in 
larger  proportion  offer  four  years  and  the  township  high  schools  two  years. 
In  Class  E  both  city  and  township  high  schools  in  larger  proportion  offer 
four  years.  In  the  total  it  is  noticed  that  all  schools  have  a  tendency  in 
larger  proportion  to  offer  two  years,  and  the  second  choice  is  four  years. 
In  this  department  the  township  high  schools  offer  more  in  every  case  ex- 
cept in  Class  E.  An  examination  of  the  graphs  referred  to  above  brings 
out  the  information  in  a  more  marked  form. 

Graph  16  is  constructed  by  providing  a  column  at  the  left  in  which 
is  written  the  subject  represented,  next  is  the  size  of  the  school,  and  fol- 
lowing this  is  the  percentage  of  time  offered  in  each  subject,  based  upon 
the  total  high  school  time  possible,  calculated  in  the  manner  heretofore 
described.  Following  this  the  percentage  is  represented  in  the  city  high 
school  by  the  hollow  bar,  and  the  situation  in  the  township  high  schools 
is  represented  by  the  solid  bar. 

This  graph  reinforces  the  statement  made  above  that  all  of  the  schools 
involved  show  the  same  amount  of  time  devoted  to  academic  subjects. 


In  commercial  work  the  township  high  schools  offer  more  work  than 
the  city  high  schools  except  in  Class  E.     In  technical  work  the  township 


Cent 


8T5 


Pig.  16. — Courses  offered — classified  according  to  size  of  schools.  In  the  ver- 
tical oblong  spaces  which  comprise  the  first  vertical  column  is  written  the  name  of 
the  subject  which  is  represented  in  its  respective  section  of  the  graph.  In  each 
section  of  the  second  vertical  column  is  shown  the  classification  of  the  schools 
according  to  enrollment.  The  third  column  shows  the  percentage  of  time  offered 
in  each  subject  in  each  graph  of  schools  based  on  the  total  high  school  time  possible. 
This  percentage  is  represented  by  the*  horizontal  bars.  The  hollow  bars  represent 
the  city  high  schools  and  the  solid  bars  represent  the  township  high  schools. 

high  schools  offer  much  more  work  than  the  city  high  schools  except  in 
Class  D.     In  Domestic  Science  the  township  high  schools  offer  more  work 


113 


than  the  city  high  schools  except  in  Class  E.  In  the  first  three  classes, 
namely  A,  B  and  C,  the  excess  amount  of  Domestic  Science  offered  by 
the  township  high  schools  is  very  marked.  In  the  matter  of  Agriculture 
the  excess  amount  of  work  in  the  township  high  schools  as  com- 
pared with  that  offered  in  the  city  high  schools  is  very  marked  in  every 
case  except  Class  D. 

In  graph  17.,  the  graph  is  constructed  by  providing  first  a  column  for 
the  subject,  academic,  commercial,  etc.  The  adjacent  column  shows  the 
percentage  of  the  time  devoted  to  the  subject  in  question,  based  upon  the 
total  high  school  time  possible.  This  graph  shows  in  a  very  marked  form 
the  fact  that  in  all  vocational  work  the  township  high  schools  offer  much 
larger  time  allotments  than  the  city  high  schools. 


Fig.  17. — Courses  offered — Totals.  The  subjects 
are  designated  in  the  horizontal  spaces  to  the  left. 
The  second  column  shows  the  percentag-e  the 
amount  of  work  offered  in  each  subject  bears  to 
the  total  time  possible  in  each  kind  of  schools. 
The  horizontal  bars  represent  this  percentage. 
The  hollow  bars  represent  the  city  high  schools 
and  the  solid  bars  represent  the  township  high 
schools. 


The  same  information  is  again  displayed  in  still  different  form  in 
graph  18.  In  this  graph  all  of  the  vocational  work  is  shown.  The  voca- 
tional work  is  the  sum  of  all  the  lines  of  work  shown  in  the  table  except 
the  academic.  The  first  column  is  devoted  to  the  size  of  school;  the 
second  column  is  for  percentages,  that  is,  the  percentage  of  time  allot- 
ment given  to  vocational  work,  the  sum  of  the  time  devoted  to  commer- 
cial, domestic  science  and  agriculture  in  the  aggregate.  For  example,  in 
Class  A  city  high  schools  offer  20.9  per  cent  of  the  total  time  possible  for 
high  school  work;  township  high  school  offer  58.2  per  cent  of  the  total 
time  possible  for  high  school  work.  This  situation  is  represented  by  the 

— 8  I  H  S 


1J4 


VOCATIONAL  WOK* 


Fig.  18. — Total  vocational  work.  The  first  ver- 
deal  column  shows  the  classification  of  high  schools 
based  on  enrollment.  The  second  vertical  column 
shows  the  percentage  of  total  vocational  work  based 
on  the  total  time  possible.  These  percentages  are 
represented  by  horizontal  bars.  The  hollow  bars  rep- 
resent the  city  high  schools  and  the  solid  bars  the 
township  high  schools. 


115 

bars  at  the  right.  The  hollow  bar  represents  the  situation  in  the  city 
high  schools,  and  the  solid  bar  the  situation  in  the  township  high  schools. 
From  a  consideration  of  the  foregoing  facts  certain  general  conclu- 
sions may  be  drawn.  The  larger  the  high  school  the  smaller  the  number 
of  prescribed  units  laid  down.  The  larger  the  high  school  the  larger  the 
number  of  electives  offered.  The  larger  high  schools  provide  wider  oppor- 
tunities for  vocational  work.  The  township  high  schools  offer  wider 
opportunities  for  vocational  work  than  the  city  high  schools.  This  is  true 
whether  we  consider  the  various  sizes  of  high  schools  separately  or 
whether  we  consider  the  whole  number  of  high  schools  in  the  study  as  a 
whole.  It  is  in  considerations  such  as  these  that  we  must  make  a  corol- 
lary with  the  work  of  preceding  chapters.  In  Chapters  2,  3  and  4  we 
found  that  costs  in  every  category  in  the  township  high  schools  were 
higher  than  in  the  city  high  schools.  Corresponding  with  that  situation 
in  this  chapter  we  find  that  the  opportunities  provided  are  more  ex- 
tensive, there  are  a  large  number  of  electives  and  these  electives  cover  a 
wider  field.  The  opportunity  for  vocational  training  is  much  more  ex- 
tensive in  the. township  high  schools  than  in  the  city  high  schools. 


116 


CHAPTER  VI. 


THE  PRINCIPAL. 

In  our  discussion  heretofore  we  have  had  to  do  primarily  with  the 
material  factors  in  the  high  school  organization.  We  must  now  turn  our 
attention  to  the  personnel  of  the  high  schools  of  the  State,  that  is,  to  the 
executive  officers  and  to  the  teachers  and  the  students.  The  topic  for  this 
chapter  is  the  discussion  of  the  experience,  training,  duties  and  salary 
of  the  principal.  In  the  reports  to  the  Department  of  Public  Instruction 
upon  which  these  studies  were  based  there  is  no  adequate  account  of  the 
training  of  the  principals.  Rather  accurate  information  is  given  regard- 
ing the  training  of  teachers  but  the  blanks  are  not  specific  enough  to  base 
confident  conclusions  on  that  part  that  has  to  do  with  the  training  of 
principals  and  superintendents.  The  only  information  available  is  that 
which  has  to  do  with  the  degrees  of  the  principals.  This  information  is 
tabulated  in  Table  XXXVII. 

This  table  reports  in  one  horizontal  column  the  number  of  schools, 
in  another  the  number  who  do  not  report,  in  another  the  number  of  those 
who  do  report,  and  in  another  the  number  who  report  but  fail  to 
report  information  on  this  item. 

By  referring  to  the  table  it  will  be  seen  that  450  schools  are  in- 
volved in  this  study.  Of  these,  114  do  not  report  upon  this  section. 
There  are  335  schools  which  report  on  this  section.  Of  this  latter  num- 
ber, 150  do  not  report  on  the  item  of  the  degrees.  In  the  remainder  of 
the  table  in  the  various  columns  are  shown  the  number  and  percentage 
of  principals  receiving  the  various  degrees  indicated.  Only  those  de- 
grees more  usually  granted  are  tabulated.  The  degree  A.  M.  is  reported 
as  A.  M.  whether  it  is  written  "A.  M."  or  "M.  A. ;»  likewise  M.  S.  It 
will  be  noticed  that  there  is  a  column  for  Total  Degrees.  This  is  the 
sum  of  all  the  degrees  in  the  preceding  columns.  Under  the  head  of 
Extra  Degrees  are  listed  those  degrees  which  are  in  addition  to  other 
degrees  held  by  the  same  individual.  The  last  column  is  marked  Blank 
Degrees.  This  includes  all  of  those  cases  which  report  the  information 
on  this  item  but  leave  the  space  for  degrees  blank. 

Noting  the  situation  in  the  city  high  schools  in  Class  A,  if  the  extra 
degrees  are  subtracted  from  the  total  degrees  as,  for  example,  3  sub- 
tracted from  57  and  the  blank  degrees  added,  we  have  a  sum  equal  to  the 
number  of  schools  reporting,  and  the  information  is  accurately  checked. 
Some  minor  discrepancies  wilt  be  found  in  the  table  due  to  errors  in 
tallying.  These  discrepancies,  however,  are  of  negligible  importance. 
The  percentages  noted  in  the  table  are  calculated  on  the  basis  of  the 
total  number  of  degrees. 


117 


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139 

It  will  be  noticed  on  an  examination  of  this  table  that  56.7  per  cent 
of  all  the  degrees  granted  to  high  school  principals  are  A.  B.  degrees, 
20.2  per  cent  are  B.  S.  degrees,  11.1  per  cent  are  A.  11.  degrees.  An  im- 
portant fact  to  be  noticed  is  the  relatively  small  number  of  post  grad- 
uate degrees.  Another  fact  that  may  be  noted  is  that  in  the  case  of  Class 
A  there  is  a  smaller  number  of  A.  B.  degrees  in  the  case  of  township 
high  schools  than  in  the  case  of  city  high  schools.  The  total.,  however, 
shows  a  larger  percentage  of  township  high  schools  having  degrees  than 
city  high  schools. 

A  similar  distribution  of  the  degrees  was  worked  out  for  the  super- 
intendents of  schools  since  this  information  was  provided  on  the  same 
blank.  This  is  of  no  particular  value  to  us  in  our  present  study  except 
for  comparative  purposes. 

It  will  be  noted  in  Table  XXXVIII,  in  which  this  information  is 
presented,  that  very  few  reports  are  made  for  township  high  schools. 

This  is  because  of  the  fact  that  in  only  a  few  cases  does  the  super- 
intendent of  the  elementary  schools  supervise  also  the  high  schools.  In 
a  few  of  these  cases  reports  were  made  concerning  the  largest  elementary 
schools  in  the  township  high  school  districts  even  though  the  superin- 
tendent in  such  case  had  no  connection  with  the  township  high  school. 

The  table  is  made  up  in  exactly  the  same  way  as  the  preceding  one. 
It  will  be  noticed  that  54.1  per  cent  of  the  degrees  granted  are  A.  B. 
degrees;  15  per  cent  are  B.  S.  degrees.  It  will  be  noted  that  there  are 
a  larger  number  of  post  graduate  degrees  for  superintendents  than  prin- 
cipals, in  fact,  15  per  cent  of  the  degrees  are  A.  M. 

The  experience  of  the  high  school  principals  of  the  State  is  compiled 
from  Item  43  of  the  Approval  Blank,  and  is  shown  in  Table  XXXIX. 

In  this  table  the  number  of  schools  making  the  report  are  shown  in 
the  horizontal  column  at  the  top  immediately  below  the  classification  of 
school.  The  next  horizontal  column  marked  "Blank"  gives  the  number 
and  percentages  of  cases  in  each  group  in  which  this  part  of  the  report 
is  left  blank.  The  purpose  of  this  latter  item  is  to  show'  the  relative 
colume  of  accurate  information  which  is  available.  It  will  be  noticed  in 
the  total  that  there  are  118  schools  of  the  450  who  do  not  report  this 
information.  It  will  be  thus  seen  that  the  information  comes  from  a 
relatively  large  proportion  of  the  schools  of  the  State,  that  is,  342.  The 
table  itself  provides  a  column  for  each  of  the  years  of  experience  up  to 
20  and  then  one  column  for  over  20.  In  each  of  these  columns  the 
number  of  principals  in  each  group  having  a  specific  number  of  years  of 
experience  is  set  down.  The  table  may  be  read  down  or  across.  Read- 
ing down,  there  are  8  principals  of  high  schools  in  Class  A  who  have 
had  one  year  of  school  experience,  10  who  have  had  two  years'  experience, 
9  who  have  had  three  years'  experience,  and  so  forth.  The  table  may  be 
read  similarly  throughout.  At  the  bottom  of  the  table  is  shown  the 
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and  the  quartile  deviation.  The  first  third  of  the  table  is  devoted  to  a 
discussion  of  the  total  school  experience  of  these  high  school  offi- 
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third  third  is  devoted  to  the  experience  the  executive  officers  have  had 
in  their  present  positions. 


120 


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127 

Examining  first  the  total  experience  of  the  high  school  principals,  it 
is  noted  that  in  every  class  the  township  high  school  principals  have  had 
more  experience  than  the  city  high  school  principals.  In  looking  at  one 
of  the  classes,  as  for  example  Class  D,  it  is  noted  that  in  the  township 
high  schools  the  median  experience  of  the  principal  is  15  years,  and  the 
experience  of  the  middle  50  per  cent  is  from  11  to  19  years. 

With  reference  to  the  total  high  school  experience.,  an  examination 
of  the  middle  portion  of  the  table  shows  that  there  is  a  tendency  for  the 
schools  of  larger  size  to  have  principals  with  longer  high  school  experi- 
ence. This  is  true  of  the  table  as  a  whole  yet  it  is  not  true  of  it  in 
detail.  For  example,  principals  of  schools  of  Class  B  have  a  shorter 
experience  than  those  of  Class  A.  Similarly  principals  of  schools  of 
Class  D  have  a  shorter  experience  than  those  of  Class  C.  But  in  general 
the  statement  is  true  that  the  larger  the  school  the  greater  the  experience 
of  the  principal.  In  every  group  the  township  high  school  principal  has 
had  longer  experience  than  the  city  high  school  principal.  It  is  to  be 
noted  that  7  years  is  the  median  high  school  experience  of  all  the  prin- 
cipals in  the  State  and  that  50  per  cent  of  the  principals  of  the  State 
have  had  from  3  to  12  years  of  experience. 

Upon  examining  the  last  portion  of  the  table  with  reference  to  the 
number  of  years  in  the  school  over  which  the  principal  now  presides,  a 
remarkable  situation  is  shown,  namely,  that  the  tenure  of  office  of  the 
high  school  principal  in  Illinois  generally  speaking  is  very  short.  It  will 
be  noted  that  the  median  tenure  of  office  for  the  State  as  a  whole  is  two 
years  and  that  50  per  cent  of  the  high  school  principals  in  the  State 
o.ccupy  their  position  from  one  to  four  years.  Here  as  before,  the  larger 
the  school  the  longer  the  principal  is  retained  in  his  position.  There  is, 
however,  very  little  difference  in  this  respect  between  Class  A  and  B. 
These  two  classes  are  practically  uniform,  that  is,  the  median  tenure  of 
office  is  2  years.  The  median  tenure  of  office  for  Classes  B  and  C  also 
is  identical,  namely,  4  years.  In  Classes  C  and  E  the  tenure  of  office 
of  the  township  high  school  principal  is  longer  than  that  of  the  city 
high  school  principal.  In  the  case  of  Class  D  the  city  high  school  prin- 
cipal retains  his  position  longer. 

This  table  shows  a  lamentable  condition  in  the  educational  affairs  of 
the  State.  In  order  that  a  system  of  schools  may  be  stable  and  develop 
in  a  healthful  way  it  is  necessary  that  their  executive  officers  be  men  of 
marked  training  and  experience  in  their  work.  That  means  the  occupa- 
tion must  provide  an  opportunity  for  a  life  career,  with  proper  remun- 
eration for  services  well  rendered. 

From  this  table  it  is  very  clear  that  the  educational  system  of  the 
State  does  not  provide  such  an  opportunity  for  men  of  ability  who  have 
taken  pains  to  secure  proper  training.  In  the  first  place,  the  total 
median  experience  of  high  school  principals  the  State  over  is  only  9 
years.  Fifty  per  cent  of  the  high  school  principals  have  had  only  5  to 
17  years  of  experience.  Their  total  high  school  experience  is  shorter 
than  this  for  the  obvious,  reason  that  many  high  school  principals  have  had 
previous  experience  in  elementary  schools.  This  double  experience, 
part  in  the  elementary  school  and  part  in  the  high  school,  is  a  good  thing 
in  providing  them  this  added  variety  of  experience  for  their  work.  The 


128 

unfortunate  feature,  however.,  is  that  the  high  school  principals  retain 
each  position  that  they  occupy  so  short  a  time.  On  the  whole,  the  mean- 
ing of  the  table  is  that  the  high  school  principal  ship  is  a  transient  posi- 
tion. Because  it  is  so  transient,  the  high  schools  of  the  State  must  in- 
evitably suffer  from  lack  of  continuity  of  policy  and  lack  of  settled  con- 
ditions, and  lack  of  stability  of  plan. 

Information  regarding  superintendents  of  schools  is  provided  also 
in  Item  43  of  the  Approval  Blank  and  is  tabulated  in  Table  XL  in  the 
same  manner  as  the  preceding  table. 

An  examination  of  this  table  shows  that  the  superintendents  of 
schools  have  longer  experience  than  the  township  high  school  principals. 
The  table  shows  that  the  longer  the  total  experience  the  larger  the  school 
and  the  longer  has  been  the  experience  of  the  superintendent.  In  the 
first  part  of  the  table  it  wrill  be  noted  that  since  there  are  columns  reach- 
ing only  up  to  20  and  one  for  over  20  that  some  of  the  medians  and 
quartiles  were  entered  over  20.  This  is  the  only  way  that  this  informa- 
tion could  be  tabulated. 

In  this  table  it  is  noted  that  the  information  is  reported  regarding 
superintendents  in  the  blanks  opposite  the  spaces  provided  for  the  town- 
ship high  schools.  This  is  because  of  the  fact  that  some  superintendents 
have  charge  of  both  the  elementary  schools  and  the  high  school  even 
though  there  is  a  separate  township  high  school  organization.  It  also 
comes  from  the  fact  that  sometimes  when  a  report  has  been  made  of 
the  township  high  school  the  information  is  also  given  for  the  city  school 
system  even  though  the  superintendent  is  not  a  part  of  the  high  school 
organization. 

The  second  part  of  this  table  shows  that  the  median  high  school 
experience  of  city  superintendents  is  ten  years  and  that  the  middle  50 
per  cent  of  them  have  from  6  to  15  years.  It  will  be  noted  that  this 
table  is  incomplete  for  the  larger  schools  but  it  is  relatively  complete 
for  the  smaller  ones. 

The  same  generalization  may  be  made  with  regard  to  city  super- 
intendents in  the  smaller  schools  as  for  the  township  high  schools  as  a 
whole,  namely,,  that  the  positions  are  transient. 

Some  information  is  available  in  the  reports  made  on  Item  43  of 
the  Approval  Blank  concerning  the  daily  work  of  the  high  school  prin- 
cipals. The  information  with  reference  to  the  number  of  classes  taught 
daily  by  the  principal  and  the  number  of  subjects  which  he  teaches  is 
shown  in  Table  XLI. 

In  this  case  as  in  the  preceding  tables  the  number  of  schools  giving 
this  report  and  the  number  not  reporting  are  tabulated  for  the  purposes 
mentioned  above,  showing  the  relative  number  of  schools  reporting.  The 
information  is  very  complete,  330  schools  out  of  450  giving  this  in- 
formation. Beading  the  horizontal  column  for  city  high  schools  of 
Class  A,  we  find  that  three  principals  teach  one  class  per  day,  4  teach 
2  classes  per  day,  14  teach  3  classes  per  day.  The  table  may  be  read  in  a 
similar  manner  throughout.  t- 

We  find  the  situation  here  as  expected,  namely,  that  the  principals 
in  the  smaller  schools  teach  a  larger  number  of  classes  daily.  The 
median  for  Classes  A  and  B  is  5  periods  per  day.  Fifty  per  cent  of  the 


129 


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principals  in  these  "two  classes  teach  from  4  to  6  periods  per  day.  Not- 
ing the  situation  in  the  township  high  schools  of  Class  D,  it  is  seen  that 
the  median  number  of  classes  taught  by  principals  in  schools  of  this 
group  is  one  period  per  day,  also  that  50  per  cent  of  the  principals  in 
this  class  teach  one  period  per  day.  In  Classes  B  and  C  the  principals 
of  township  high  schools  teach  a  smaller  number  of  classes  than  prin- 
cipals of  city  high  schools. 

The  latter  half  of  this  table  is  devoted  to  the  compilation  of  in- 
formation regarding  the  number  of  subjects  taught  by  principals  daily. 
33 y  subjects  in  this  table  is  meant  one  group  of  subjects.  For  example, 
-all  the  language  is  included  in  one  group,  whether  French  or  German. 
All  the  sciences  are  included  in  a  single  group.  After  this  manner  the 
subjects  are  grouped  in  the  following  way,  English  Language,  Mathe- 
matics, History,  Science,  Vocational. 

It  will  be  seen  that  as  the  size  of  the  school  increases  the  number  of 
subjects  taught  daily  by  the  principal  decreases.  There  is  no  appreciable 
difference  as  to  the  number  of  subjects  taught  daily  between  city  high 
schools  and  township  high  schools. 

In  Table  XLII  the  work  of  superintendents  is  displayed  in  a-  man- 
ner similar  to  that  of  the  principals  in  the  preceding  table. 

As  would  be  expected,  the  superintendents  teach  less  than  the 
principals.  The  information  in  this  table  is  meager  because  the  report 
was  made  by  principals  and  not  superintendents.  Two  hundred  and 
twenty-three  schools  do  not  report  this  item.  Of  course,  only  in  a  few 
cases  do  superintendents  teach  in  township  high  schools  where  there  is 
an  arrangement  for  cooperation  between  elementary  schools  and  township 
high  schools  in  the  same  territory.  Hence,  the  table  as  regards  township 
high  schools  is  of  little  value. 

Supervision  is  assumed  to  be  the  primary  function  of  the  principal 
of  the  high  school.  It  is  clear  that  in  the  smaller  high  schools  he  is  a 
teacher  primarily  and  not  a  supervisor  because  his  time  is  consumed  in 
teaching. 

In  Item  44  of  the  Approval  Blank  was  reported  information  con- 
cerning the  amount  of  time  spent  by  the  principal  in  supervision.  By 
the  form  of  the  question  the  information  could  come  in  in  any  form 
chosen  by  the  reporting  officer.  The  information  actually  did  come 
in  a  great  variety  of  expressions.  For  example,  the  principals  reported, 
"1  period  daily,'7'  "Xone,"  "A  little,"  "45  minutes,"  "3  hours,"  "2  hours," 
and  so  forth.  In  order  to  get  this  information  in  form  so  that  it  might 
be  tabulated  these  reports  were  reduced  to  fractions  of  the  day.  For 
example,  one  period  would  be  less  than  a  fourth,  two  periods  would  be 
more  than  a  fourth,  an  hour  would  be  less  than  a  fourth,  two  hours 
would  be  a  fourth  or  more.  It  was  found  by  treating -the  information 
in  this  way  that  the  reports  could  in  a  manner  that  is  fairly  acceptable 
be  reduced  to  a  common  denominator.  The  information  treated  in  this 
way  was  then  tabulated  in  Table  XLIII. 

A  column  is  shown  for  the  blanks,  that  is  for  the  number  and  per- 
centages of  those  supervisory  officers  who  made  no  report.  Since  there 
are  446  schools  shown  in  these  reports  and  only  52  of  them  failed  to  report 
on  this  item  it  will  be  seen  that  the  information  is  very  complete.  There 


137 


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is  a  column  for  superintendents.  This  means  that  the  principal  when 
reporting  indicates  that  the  superintendent  is  responsible  for  supervi- 
sion. Then  there  is  a  column  for  Less  than  %,  ^  or  more,  etc.,  as 
indicated. 

A  little  over  23  per  cent  of  the  principals -in  Classes  A  and  B  report 
that  there  is  little  or  no  supervision.  In  Class  A  55  per  cent  of  the 
principals  of  township  high  schools  devote  y±  or  more  of  their  time  to 
supervision  found  by  adding  columns  "14  an(i  more"  to  those  above.  In 
this  class  35.6  per  cent  of  the  principals  of  city  high  schools  devote  % 
or  more  of  their  time  to  supervision.  It  is  clear  that  in  this  case  the 
principals  of  township  high  schools  give  a  larger  amount  of  their  time 
to  supervision  than  in  the  case  of  the  city  higli  schools.  This  same  prin- 
ciple will  be  seen  throughout  all  the  classes,  namely,  that  the  township 
high  school  principals  devote  a  larger  proportion  of  their  time  to  super- 
vision, and  this  is  also  notable  in  the  total  results.  In  Class  A  39.58  pet1 
cent  of  the  principals  found  by  adding  columns  "y±  and  more77  to  those 
above  devote  a  fourth  or  more  of  their  time  to  supervision;  in  Class  B 
37.48  per  cent,  in  Class  C  56  per  cent,  in  Class  D  68.17  per  cent,  in  Class 
E  77.77  per  cent.  In  other  words,  the  larger  the  school  the  larger  pro- 
portion of  the  principal's  time  is  devoted  to  supervision.  A  large  num- 
ber of  the  principals  in  Classes  D  and  E  devote  all  of  their  time  to 
supervision.  In  the  total  results  38.8  per  cent  of  the  principals  of  city 
high  schools  and  59.13  per  cent  of  the  principals  of  township  high  schools 
give  one-fourth  or  more  of  their  time  to  supervision. 

The  next  subject  in  order  is  the  discussion  of  the  salaries  of  the 
principals.  Under  Item  43  of  the  Approval  Blank  information  was 
collected  on  this  topic,  and  is  shown  in  this  study  in  Table  XLIY. 

In  this  table  information  is  given  regarding  332  high  schools.  This 
table  is  constructed  in  exactly  the  same  manner  as  the  preceding  tables. 
The  information  is  also  shown  graphically  in  Figure  19. 

Note  the  wide  difference  existing  between  the  practices  of  the  city 
high  schools  and  the  township  high  schools  in  the  matter  of  the  prin- 
cipal's salary.  Salaries  are  much  superior  in  the  case  of  the  township 
high  schools  to  those  in  the  city  high  schools  of  the  same  size.  In  fact, 
quite  frequently  the  township  high  school  of  a  certain  size  gives  a  salary 
surpassing  that  of  the  principal  of  the  city  high  school  of  the  next  larger 
size. 

Beading  the  table  as  it  pertains  to  an  individual  class,  for  example 
Class  D,x  it  will  be  noted  that  the  township  high  schools  of  this  group 
have  a  median  salary  of  $2,500  and  that  the  middle  50  per  cent  of  them 
have  salaries  from  $2,250  to  $2,675. 

Under  Item  43- A  in  Form  2  information  is  collected  on  this  topic 
as  it  pertains  to  salaries  of  principals  and  supervisors  who  teach  less  than 
half  time.  This  information  is  shown  in  Table  XLV. 

The  table  is  constructed  in  the  same  manner  as  the  preceding  one, 
and  the  information  is  graphically  shown  in  Figure  20.  This  table  and 
graph  verifies  and  reinforces  the  information  shown  in  the  preceding 
table  and  graph,  though  it  is  a  group  of  people  a  little  differently  selected. 
It  is  that  group  of  principals  who  teach  a  small  portion  of  their  time. 
Although  supervisors  who  teach  less  than  half  time  is  also  included 


141 


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143 


here  there  are  not  many  supervisors  who  work  in  the  high  schools.  There 
are  no  figures  showing  the  number  of  supervisors  working  in  township 
high  schools  as  compared  to  city  high  schools.  The  comparative  situa- 
tion in  this  matter  is  presumably  about  the  same.  For  example,  music 
supervisors  in  many  cases  give  part  of  their  time  to  the  township  high 
school  and  part  to  the  underlying  elementary  schools.  A  similar  situa- 
tion exists  in  the  city  high  schools. 

In  Item  42-C  of  Form  2  still  more  information  is  provided  on  this 
general  topic  with  a  still  different  selection  of  principals,  namely,  those 
who  do  no  teaching.  On  the  basis  of  the  information  provided  in  this 
item  Table  XLVI  and  Figure  21  are  constructed. 


Fig.  19. — Salaries  of  principals.  The 
high  schools  are  classified  at  the  bottom 
according  to  number  enrolled.  The  up- 
right bars  represent  the  range  of  salaries 
from  the  first  to  the  third  quartile ;  the 
hollow  bars  represent  the  city  high  schools 
and  the  solid  bars  the  township  high 
schools.  M  represents  the  median  salary 
in  each  case.  An  equalized  scale  of 
salaries  is  shown  at  the  left  and  a  scale 
of  the  medians  at  the  right. 


4000 


3500 


3000 


2500 


4000 


2500 


Voo 


500 


. 

100          200 


500         cws* 


It  will  be  noticed  that  in  this  case  the  median  salar}^  of  the  prin- 
cipal of  the  township  high  school  is  less  than  that  of  the  principal  of 
the  city  high  school,  and  this  tendency  is  accurately  displayed  in  the 
graph.  The  meaning  of  this  is  that  the  township  high  school  principal 
ceases  teaching  at  a  lower  level  of  salary  than  the  principal  of  the  city 
high  school,  that  is,  he  is  relieved  earlier  from  the  burden  of  teaching 
than  the  city  high  school  principal.  It  is  a  situation  entirely  in  accord 
with  the  general  results  of  our  investigation  so  far,  namely,  that  the 
township  high  school  provides  financially  more  liberally  than  does  the 
city  high  school  and  the  township  high  school  principal,  as  stated  above, 
is  relieved  from  the  burden  of  teaching  sooner  than  the  city  high  school 
principal. 


144 


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A-  OOP 


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3000 


2500 


20OO 


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J550 

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TO  TO  TO  TO  AND 

100       200       300       500      ovEH 


Fig-.  20. — Salaries  of  principals  and 
supervisors  who  teach  less  than  half  time. 
The  high  schools  are  classified  at  the 
bottom  according  to  the  number  enrolled. 
The  upright  bars  represent  the  range  of 
salaries  from  the  first  quartile  to  the 
third  quartile.  The  hollow  bars  represent 
the  city  high  schools,  and  the  solid  bars 
the  township  high  schools.  M  represents 
the  median  salary  in  each  case.  An 
equalized  scale  of  salaries  is  shown  at 
the  left,  and  a  scale  of  the  medians  at 
the  right. 


4000 


3500 


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M 


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1000 


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2200 


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1600 


M 


|OOO 


500 


I 


\         1OI       20!        301 

TO  TO  TO  TO 

)00      200        300          500 


5~0( 


Fig.  21. — Salaries  of  principals  who 
do  no  teaching.  The  high  schools  are 
classified  according-  to  the  number  en- 
rolled. The  upright  bars  represent  the 
range  of  salaries  from  the  first  quartile 
to  the  third  quartile  ;  the  hollow  bars  re- 
present the  city  high  schools,  and  the 
solid  bars  the  township  high  schools.  M 
represents  the  median  salary  in  each 
case.  An  equalized  scale  of  salaries  is 
shown  at  the  left,  and  a  scale  of  the 
medians  at  the  right. 


145 


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§    i3M 

oo     cjicg 

oo 

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OH 

3     ^^ 

OH 

H  1! 

3H 

i| 

Total  

Total  City  H.  S 
Total  Twp.  H. 

Grand  tota 

-! 

o 

°1 

i 

HO 

—10  I  H  S 


146 

Some  information  on  this  point  was  compiled  from  Mr.  Counts' 
preliminary  tabulations  on  the  Xorth  Central  Association,  based  on  the 
reports  of  1913.  This  information  is  tabulated  in  Table  XLVII,  and  is 
designed  to  show  the  situation  comparing  all  of  the  schools  of  the  Xorth 
Central  Association,  all  of  the  schools  of  Illinois  outside  of  Chicago,  and 
the  township  high  schools  of  Illinois.  There  are  about  150  high  schools 
in  Illinois  belonging  to  the  Xorth  Central  Association.  Of  these  39  are 
township  high  schools.  The  medians  of  these  three  groups  are  calculated 
and  shown  in  this  table.  It  was  not  thought  worth  while  to  make  a  de- 
tailed tabulation  of  this  information.  The  schools  of  the  various  groups 
are  shown  in  the  latter  part  of  the  table.  It  will  be  readily  seen  that 
there  is  a  constant  tendency  throughout  all  of  the  groups,  which  is  that 
the  Illinois  high  schools  pay  their  principals  a  higher  salary  than  the 
North  Central  Association  schools  do  as  a  whole,  and  that  the  townshfp 
high  schools  in  Illinois  pay  a  higher  salary  than  the  Xorth  Central  Asso- 
ciation schools,  and  a  salary  also  higher  than  the  Illinois  high  schools 
pay.  For  example,  in  Class  D  the  median  salary  in  the  Xorth  Centra! 
Association  is  $1,683,  in  Illinois  high  schools  outside  of  Chicago  it  is 
$2,300,  and  in  the  township  high  schools  for  this  group  the  median  is 
reported  as  $2,600. 

TABLE  XLVII— MEDIAN    SALARIES    OF    PRINCIPALS    (NORTH     CENTRAL     BLANK). 


A 

B 

C 

D 

E 

F 

Total. 

North  Central  

$1,216 

$1,158 

$1,312 

>l  B6I 

12,300 

Over  $3,000 

$1,342 

Illinois  outside  of  Chicago 

1,500 

1  350' 

2  200 

2  300 

2  250 

Over   3  000 

1,659 

Township  high  school  

1,450 

1,450 

2,250 

2,600 

Over   3,000 

2,000 

Since  the  salaries  of  superintendents  were  also  reported  in  Form  43 
of  the  Approval  Blank,  for  comparative  purposes  it  was  decided  to  com- 
pile this  information  also.  This  information  is  given  in  Table  XLVII  I 
and  is  shown  graphically  in  Figure  22. 

At  the  left  of  this  table  in  the  vertical  column  marked  "Xo.  of 
schools"  is  shown  the  number  of  schools  reporting  on  this  item,  232 
schools  in  all.  There  are  a  few  straggling  cases  here  in  which  the  super- 
intendent is  reported  as  supervising  the  work  of  the  high  school.  As  an 
example  of  the  type  of  information  shown  here,  the  situation  in  Class  D 
may  be  noted.  The  median  salary  of  superintendents  of  schools  of  th? 
size  listed  in  this  group  is  &2.2i~»0 :  the  middle  50  per  cent  are  paid  $2,100 
to  $2,300.  In  Figure  '2 '2  is  shown  graphically  a  comparison  of  the*  sal- 
aries of  city  superintendents  and  high  school  principals.  This  graph  is 
based  upon  Tables  XLIV  and  XLVTII. 

An  equalized  scale  is  shown  at  the  left  of  the  graph  and  a  scale  of 
medians  at  the  right.  It  is  very  readily  seen  that  the  township  high 
school  principals  secure  about  the  same  or  a  smaller  salary  than  the  city 
high  school  superintendents  in  tTie  case  of  the  smaller  schools.  In  the 
case  of  schools  having  an  enrollment  of  over  200  pupils  the  township 
high  school  principal  receives  a  markedly  larger  salary  than  superin- 
tendents of  schools  having  under  their  supervision  high  schools  of  a 


147 


III 

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Total  City  H.  8... 
Total  Twp.  H.  S.. 

o 

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201-300 

~?. 

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HC 

i 

148 


similar  size.  In  other  words,  city  superintendents  supervising  an  ele- 
mentary school  system  and  also  the  high  school  system  receive  a  smaller 
salary  for  doing  this  than  the  township  high  school  principals  who  have 
high  schools  alone  of  equal  size  to  administer. 

Certain  conclusions  may  be  drawn  from  the  information  developed 
in  this  chapter.  By  far  the  largest  proportion  of  principals  and  super- 
intendents have  collegiate  degrees.  In  the  matter  of  total  experience  of 
high  school  principals,  this  experience  increases  with  the  size  of  the 
school.  This  is  also  true  as  regards  the  high  school  principal's  high 
school  experience  and  also  his  experience  in  the  school  which  he  is  at 


35oo 


3000 


2000 


4000 


AT?0.. 
_25oq 

2200 


2poo 
)900 


1500 


1000 


1350 


noo 

-_— -T^T 

1080 


101        201        301       501 
TO  T0  To  To         AND 

100     goo     3oo     Sbo     oven 


Fig,  22. — Salaries  of  city  superin- 
tendents and  township  high  school  prin- 
cipals compared.  The  high  schools  are 
classified  at  the  bottom  according  to  the 
number  enrolled.  The  upright  bars  re- 
present the  range  of  salaries  from  the 
first  quartile  to  the  third  quartile.  The 
hollow  bars  represent  salaries  of  the  city 
superintendents  and  the  solid  bars  the 
salaries  of  the  township  high  school  prin- 
cipals. M  represents  the  median  salary 
in  each  case.  An  equalized  scale  of 
salaries  is  shown  at  the  left,  and  a 
scale  of  the  medians  at  the  right. 


present  administering.  The  principal  of  the  township  high  school  has  a 
longer  teaching  experience,  a  longer  high  school  experience  and  a 
longer  experience  in  the  school  in  which  he  is  now  at  work  than  the  city 
high  school  principal.  The  city  superintendent  has  a  longer  experience 
in  all  three  of  these  categories  than  the  township  high  school  principal. 
It  is  clearly  evident  from  the  information  shown  in  this  chapter  that  the 
position  of  the  principalship  is  entirely  too  transient.  It  is  also  shown 
that  the  city  superintendency  is  likewise  a  transient  position.  As  to  the 
work  which  the  principals  do,  the  number  of  classes  taught  daily  decreases 
with  the  increase  in  the  size  of  the  school,  and  the  number  of  subjects 


149 

taught  daily  decreases  with  the  size  of  the  school.  This  same  statement  is 
true  with  reference  to  the  city  superintendent.  As  to  the  proportion  of 
time  spent  by  the  principal  in  supervision,  this  increases  as  the  size  of  the 
school  increases.  The  township  high  school  principal  devotes  a  larger 
proportion  of  his  time  to  supervision  than  the  city  high  school  principaJ. 
The  salaries  of  township  high  school  principals  are  markedly  greater  than 
the  salaries  of  city  high  school  principals  for  schools  of  the  same  size. 
The  salaries  of  high  school  principals  in  the  township  high  schools  are 
larger  than  the  salaries  of  city  superintendents  who  have  a  system  of 
schools  containing  a  high  school  of  the  same  size.  The  salaries  of  town- 
ship high  school  principals  are  greater  than  the  salaries  of  principals  in 
the  North  Central  Association  as  a  whole  and  also  greater  than  those  of 
high  school  principals  in  the  same  size  high  schools  outside  of  Chicago. 


150 


CHAPTER  VII. 


TEACHEES. 

By  far  the  most  important  factor  in  the  efficiency  of  any  educational 
institution  is  its  body  of  instructors.  Entirely  too  little  attention  has 
been  given  to  this  feature  of  school  administration.  School  boards  and 
school  executives  are  often  disposed  to  expend  heavily  upon  the  more 
tangible  features  of  the  school  organization  as,  for  example,  buildings, 
grounds  and  equipment.  This  is  probably  due  to  the  fact  that  such 
material  evidences  of  an  organization  are  more  easily  understood.  It  is 
often  possible  to  spend  thousands  of  dollars  for  comparatively  needless 
expenditure  in  the  way  of  buildings  and  equipment.  Heavy  repairs  may 
be  undertaken  without  great  agitation  in  the  community  whereas  a  com- 
paratively small  increase  in  the  salary  of  the  teaching  force  often  results 
in  criticism  and  opposition. 

In  this  chapter  we  address  ourselves  to  the  examination  of  the  situa- 
tion with  reference  to  the  teaching  force,  with  particular  reference  to 
training,  experience,  daily  work  and  salary. 

Information  regarding  the  training  of  teachers  was  collected  under 
Item  12  of  Form  2,  and  has  been  tabulated  in  Table  XLIX. 

The  information  shown  in  Table  XLIX  is  displayed  graphically 
in  Figure  23.  In  this  table  there  is  a  series  of  vertical  columns  desig- 
nated as  A,  B,  and  C,  etc.,  up  to  G,  each  corresponding  with  the 
subdivision  of  the  information  as  shown  in  Item  12.  The  higher  the 
letter  the  higher  the  point  reached  in  the  academic  training  of  the 
teacher.  For  example,  if  a  teacher  is  a  graduate  of  a  State  normal 
school  he  is  not  reported  as  a  high  school  graduate;  if  he  is  a  college 
graduate,  he  is  not  reported  as  a  State  normal  graduate,  and  so  on 
throughout  the  table.  In  the  latter  half  of  the  table  is  shown  the  sta- 
tistics with  reference  to  those  teachers  who  did  not  graduate  from  any 
institution.  This  is  handled  in  exactly  the  same  way  as  the  previous 
part  of  the  table.  For  example,  if  a  teacher  attended  the  State  normal 
he  is  not  reported  as  having  attended  high  school.  Similarly,  if  he  is 
reported  as  having  attended  college,  he  is  not  reported  as  having  attended 
the  State  normal  school  although  he  has  attended  such  an  institution. 
In  other  words,  teachers  are  reported  each  but  once  in  the  information 
provided  under  this  item.  The  number  and  percentage  of  teachers  hav- 
ing the  various  grades  of  training  indicated  at  the  head  of  the  column  are 
shown  beneath.  For  example,  in  city  high  schools  of  Class  A  there  are 
316  teachers  out  of  a  total  of  721,  amounting  to  43.8  per  cent  of  the  num- 
ber, who  are  graduates  of  college  only.  In  this  same  group  there  are 
150  teachers  out  of  721,  or  20.8  per  cent  of  that  number,  who  are  grad- 
uates of  State  normal  only. 


151 


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152 

An  inspection  of  this  table  shows  that  there  is  a  straggling  and  rela- 
tively insignificant  number  of  teachers  who  attended  but  did  not  graduate 
from  high  school.  The  largest  number  ot!  teachers  who  have  had  some 
academic  training  and  who  attended  institutions  of  the  various  classes  but 
did  not  graduate  are  in  the  small  schools.  By  studying  the  State  as  a 
whole,  it  is  found  that  there  is  not  a  very  large  percentage  of  the  teachers 
of  the  State  who  have  this  relatively  incomplete  academic  training.  Only 
3.5  per  cent  of  the  teachers  of  the  State  are  graduates  of  high  school  only. 
It  is  clear  that  the  smaller  schools  depend  in  a  larger  measure  upon  the 
normal  schools  than  the  larger  ones  since  they  have  a  greater  percentage 


& 

Per 

Cent 

s 

J 

& 

101 

53..\ 
68^9 

72^ 

1 

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w 

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—  1 

Fig.  23. — In  the  second  vertical  column  the  high  schools  are  classified  according 
to  enrollment.  In  the  second  vertical  is  shown  the  percentage  of  college  graduates 
in  each  group  of  schools  based  on  the  total  number  of  teachers  in  the  group.  The 
horizontal  bars  represent  percentages.  The  hollow  bars  represent  the  percentages 
in  the  city  high  schools,  and  the  solid  bars  the  percentages  in  the  township  high 
schools. 

of  State  normal  schools  on  their  faculties  than  the  larger  schools.  The 
largest  group  in  all  the  schools  of  all  the  graduates  is  represented  by 
college  graduates,  and  the  percentage  of  college  graduates  increases  with 
the  size  of  the  school.  A  fairly  good  proportion  of  the  teachers  of  the 
State  are  graduates  of  college  and  normal  school  both.  The  group  which 
has  the  largest  proportion  of  teachers  who  are  graduates  of  college  and 
State  normal  school  both  in  Class  B. 

It  will  be  noted  by  a  further  examination  of  the  figures  that  the  ex- 
tent of  academic  training  increases  with  the  size  of  the  school.  A  fur- 
ther fact  which  comes  out  of  these  figures  is  that  in  every  group  the 
township  high  school  teachers  have  had  more  academic  training  than  the 
city  high  school  teachers.  It  is  possible  by  adding  columns  A  and  B  to 
find  out  the  total  number  of  high  school  teachers  in  the  State  who  are 
college  graduates.  Making  this  calculation  for  the  totals  we  find  that 
68.1  per  cent  of  all  of  the  high  school  teachers  in  the  State  are  college 
graduates.  Of  the  teachers  in  the  city  high  schools  64.3  per  cent  are 
college  graduates,  and  76.3  per  cent  of  the  teachers  in  the  township  high 


153 

schools  are  college  graduates.  By  referring  to  Figure  23  these  facts  be- 
come more  vivid.  In  setting  up  this  graph  columns  and  percentage 
columns  A  and  B  were  added.  The  first  column  of  figures  in  this  graph 
is  the  size  of  the  school,  the  second  column  is  the  percentage  of  totals  in 
the  respective  groups  who  are  college  graduates.  For  example,  in  the 
city  schools  of  Class  A  52.1  per  cent  of  the  teachers  are  college  grad- 
uates. In  the  township  high  schools  of  Class  A  63.4  per  cent  are  college 
graduates.  The  percentages,  of  teachers  who  are  college  graduates  in  the 
city  high  schools  are  represented  by  hollow  bars ;  in  the  township  high 
schools  they  are  represented  by  solid  bars.  The  graph  merely  serves  to 
emphasize  the  fact  brought  out  by  the  tables,  that  is,  that  the  township 
high  schools  have  a  larger  proportion  of  college  graduates  than  the  city 
high  schools. 

Some  information  bearing  upon  the  subject  of  the  training  of  the 
teachers  in  the  high  schools  of  the  State  was  reported  under  Item  43  of 
the  Approval  Blank  which  provides  spaces  for  reporting  the  degrees 
possessed  by  the  teachers.  This  information  is  collated  in  Table  L. 

In  this  table  there  is  a  vertical  column  showing  the  number  of 
schools  reporting  on  this  section  of  the  Approval  Blank.  A  horizontal 
column  shows  the  number  of  schools  reported  in  this  item,  which  is  399, 
a  very  large  proportion  of  the  schools  in  the  State  and  sufficient  to  give 
reliable  information.  Another  column  reports  the  number  of  teachers 
involved  in  this  study,  which  is  1,710.  The  middle  portion  of  the  table 
is  devoted  to  a  series  of  vertical  columns  for  each  of  the  more  common 
degrees,  A.  B.,  A.  M.,  etc.  In  the  case  of  A.  M.  all  of  the  teachers  are 
reported  in  the  same  column  whether  the  degree  is  written  as  A.  M.  or 
M.  A.,  similarly  all  of  the  M.  S.  and  Ph.  M.  At  the  right  of  the  table 
is  a  column  each  for  total  degrees,  extra  degrees,  and  blank  degrees.  By 
extra  degrees  is  meant  the  degrees  which  are  in  addition  to  the  bachelor's 
degrees.  The  column  for  blank  degrees  reports  the  number  of  cases 
where  the  space  for  this  information  was  left  blank.  In  reading  the 
columns  in  this  table  horizontally  we  note  that  135  teachers  in  city  high 
schools  of  Class  A  have  A.  B.  degrees;  28  have  B.  S.  degrees,  etc.  In 
similar  manner  the  whole  table  may  be  read.  The  percentages  are  cal- 
culated on  the  basis  of  the  total  degrees.  For  example,  135  or  74.2  per 
cent  of  the  total  degrees  (182)  possessed  by  teachers  in  city  high  schools 
of  Class  A  are  A.  B.  degrees. 

We  get  an  accurate  idea  of  the  situation  in  any  group  of  schools  by 
subtracting  the  extra  degrees  from  the  total  degrees  reported,  and  adding 
the  blanks.  For  example,  in  the  case  of  township  high  schools  of  Class 
A  there  are  reported  56  degrees,  subtracting  2  degrees  and  adding  48 
blanks  we  have  102,  the  number  of  teachers  reported  for  this  group.  In 
one  or  two  instances  there  are  slight  inaccuracies  in  this  matter  because 
of  errors  in  tallying,  but  an  examination  of  the  table  will  show  that  these 
errors  are  so  small  as  to  be  negligible. 

The  information  shown  in  this  table  corresponds  rather  accurately 
with  that  provided  in  the  previous  table.  A  number  of  the  schools  have 
not  reported  this  information  yet  it  is  found  that  in  the  information 


154 


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given  56.4  per  cent  of  the  teachers  concerned  have  degrees  of  one  sort 
or  another.  This  is  found  by  calculating  the  percentage  of  those 
possessing  degrees  on  the  basis  of  the  number  of  teachers.  Similarly  it 
is  to  be  noted  that  the  township  high  school  teachers  have  degrees  in 
larger  proportion  than  the  city  high  school  teachers,  the  exact  percentages 
respectively  being  63  and  53.4. 

In  the  case  of  city  high  schools  a  larger  proportion  of  A.  B.  degrees 
are  reported  and  in  the  case  of  township  high  schools  a  larger  proportion 
of  B.  S.  degrees  are  reported.  The  township  high  schools  report  a  larger 
proportion  of  post  graduate  degrees. 

This  matter  of  the  training  of  high  school  teachers  is  the  most 
vital  problem  in  high  school  administration.  In  the  report  here  dis- 
cussed concerning  the  academic  training  of  teachers  there  is  no  informa- 
tion that  bears  directly  upon  their  professional  training.  These  tables 
have  to  do  entirely  with  their  academic  training,  but  it  is  very  clear  that 
the  better  schools  insist  upon  a  more  extensive  academic  training,  that 
is,  the  larger  schools  do  this  and  the  township  high  schools  do  it.  There 
will  never  be  a  satisfactory  situation  in  the  schools  of  the  country  until 
a  thorough  academic  training  is  insisted  upon  in  all  of  the  schools.  This 
thorough  academic  training  must  be  followed  up  with  a  supplementary 
requirement  of  high  degree  in  the  matter  of  professional  training.  I 
know  the  objection  at  once  will  be  raised  that  it  is  impossible  for  teachers 
to  spend  the  large  amount  of  time  involved  in  a  thorough  academic  course 
with  a  minimum  requirement  of  the  bachelor's  degree,  followed  up  with 
an  expensive  post  graduate  course  dealing  with  the  science  of  education, 
when  the  financial  rewards  are  so  meager.  A  section  of  this  same  chap- 
ter will  show  that  the  financial  rewards  are  meager  with  certain  excep- 
tions. However,  it  seems  that  the  best  way  to  secure  adequate  profes- 
sional standards  and  the  commensurate  financial  remuneration  is  to 
begin  by  setting  up  standards  of  professional  training  without  regard  to 
the  immediate  financial  reward.  If  the  educators  of  the  country,  even 
at  the  expense  of  great  personal  sacrifice,  will  raise  the  educational  and 
professional  standards  of  the  teachers,  the  time  will  inevitably  come 
when  teaching  and  school  administration  will  be  accorded  its  proper 
recognition  as  a  profession,  and  the  financial  rewards  are  bound  to  follow 
such  a  policy.  As  I  have  said  above,  this  is  the  most  important  problem 
to-day  in  the  field  of  school  administration,  and  it  is  one  that  needs  clear 
thinking,  and  firm  determination  in  the  execution  of  any  policy  that  may 
be  formulated. 

Closely  related  to  academic  training  in  the  preparation  of  a  teacher 
is  experience.  Any  amount  of  academic  training  is  of  no  value  unless  it 
is  supplemented  by  successful  experience.  The  teacher  must  be  tested  in 
the  class  room  before  accepted  as  a  part  of  the  educational  machinery  of 
the  State.  A  certain  amount  of  experience  may  be  set  off  as  a  part  of 
the  training,  how  much  it  is  at  present  difficult  to  estimate.  There  is  a 
feeling  on  the  part  of  some  educators  that  it  is  possible  after  a  certain 
stage  for  a  teacher  to  have  so  much  experience  as  to  be  no  longer  very 
desirable.  A  statement  is  often  made  that  a  teacher  has  had  long  experi- 


156 

ence  and,  hence,  is  in  a  rut.  There  are  certain  movements  going  on 
educational  lines  at  the  present  time  which  obviate  this  tendency.  This 
movement  is  to  give  teachers  adequate  training  during  service.  If  this 
is  accomplished  in  the  most  desirable  way,  the  teacher  will  always  be 
growing  and  increased  experience  will  constantly  be  an  added  asset. 

The  information  collected  in  Item  43  of  the  Approval  Blank  fur- 
nished illuminating  material  on  this  topic.  The  question  calls  for  the 
total  number  of  years  of  teaching  experience  in  the  case  of  each  teacher, 
the  total  high  school  experience  and  the  total  experience  which  the 
teacher  has  had  in  the  high  school  where  he  is  now  employed.  This 
information  is  tabulated  in  Table  LI. 

This  information  pertains  to  1,830  teachers.  The  number  of  teach- 
ers in  each  group  is  shown  in  the  columns  provided  for  that  purpose. 
The  number  of  teachers  who  have  had  one  year's  experience  are  shown  in 
the  proper  vertical  column  marked  "1,"  the  number  who  have  had  two 
years  in  the  vertical  column  marked  "2"  and  so  forth,  on  down  to  a 
point  where  a  column  is  provided  for  those  who  had  had  over  20 
years.  If  we  start  to  read  this  column  we  notice  that  of  the  424  teachers 
working  in  the  city  high  schools  of  Class  A,  106  of  them  have  had  one 
years'  experience,,  90  have  had  two  years'  experience,  and  so  on  until 
we  reach  near  the  end  of  the  horizontal  column  where  we  note  that  6 
have  taught  over  20  years. 

At  the  right  of  each  section  of  the  table  the  median,  the  first  quar- 
tile  and  the  third  quartile  are  calculated.  This  provides  information  of 
a  very  striking  character.  For  example,  the  median  experience  for  all 
of  the  teachers  of  the  State  is  4  years;  50  per  cent  of  them  teach  from 
2  to  8  years.  It  is  thus  very  clear  that  teaching  is  a  temporary  occu- 
pation which  is  engaged  in  for  a  few  years  and  then  laid  aside  for  other 
work. 

If  we  examine  the  table  carefully  we  shall  see  that  the  larger  the 
school  is  the  longer  the  teachers  teach.  For  example,  in  Class  E  the 
median  length  of  experience  is  9  years,  with  50  per  cent  of  the  teachers 
teaching  from  7  to  15  years.  In  the  smallest  schools  in  Class  A,  for 
example,  the  median  experience  for  the  city  high  schools  is  3  years,  with 
50  per  cent  of  the  teachers  teaching  from  2  to  5  years.  This  is  a  very 
unfortunate  situation  for  all  of  the  schools  and  particularly  for  the 
small  ones.  It  means  that  the  schools  are  in  a  constant  state  of  upheaval 
and  readjustment  because  of  the  constant  influx  of  new  personalities  in 
the  teaching  force.  Teachers  are  no  sooner  acclimated  than  they  are  dis- 
missed or  leave  voluntarily.  No  commercial  organization  could  exist 
efficiently  under  such  a  system.  I  think  it  is  probably  true  that  more  of 
the  defects  of  school  systems  are  to  be  traced  to  this  source  than  to  any 
other. 

The  middle  section  of  the  table  is  devoted  to  a  compilation  of  the 
information  provided  regarding  the  high  school  experience  of  teachers. 
In  the  portion  devoted  to  the  total  experience  all  of  the  experience  of 
the  teachers  is  included,  whether  this  experience  was  secured  in  high 
schools  or  in  other  schools.  In  this  middle  section  the  tabulation  applies 


157 


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only  to  high  school  experience.  The  tabulation  is  made  up  exactly  in  the 
same  way  as  the  first  part  of  the  table. 

Here  again  we  note  the  relatively  large  number  of  teachers  who 
have  had  only  a  small  high  school  exprience.  For  example,  of  the  1,830 
teachers  comprised  in  this  investigation  443  of  them  have  had  only  one 
years'  experience  in  high  school.  In  the  latter  part  of  the  middle  section 
of  the  table  it  will  be  noted  that  the  median  number  of  years  of  experi- 
ence of  instructors  in  Illinois  in  high  schools  is  3  years.  Fifty  per  cent 
of  the  teachers  of  the  high  schools  have  had  only  %  to  7  years  of  experi- 
ence in  high  school.  Here  again  we  note  that  the  longer  experience  has 
been  acquired  by  those  in  the  larger  schools.  The  difference  in  experi- 
ence between  township  high  school  teachers  and  city  high  school  teachers 
is  not  very  marked  at  this  point. 

The  third  section  of  the  table  is  devoted  to  a  compilation  of  the 
information  relating  to  the  tenure  of  office  of  the  teacher  in  the  school 
in  which  he  is  now  employed.  The  same  tendency  as  was  noted  in  the 
previous  part  of  the  table  is  shown  here  in  a  much  more  marked  degree. 
Of  the  1,830  teachers  involved  in  this  study  799  of  them  are  teaching 
their  first  year  in  their  present  position.  It  is  to  be  particularly  noted 
that  the  median  length  of  service  in  teachers  in  their  present  positions 
is  2  years,  and  that  50  per  cent  of  them  have  held  their  present  position 
from  1  to  4  years  only.  Here  again  the  larger  the  school  the  longer  the 
teachers  have  held  their  positions.  There  is  no  marked  difference  be- 
tween the  township  high  schools  and  the  city  hig;h  schools  in  this  respect. 

This  latter  part  of  the  table  is  appalling  in  its  significance.  The 
previous  part  of  the  table  has  shown  that  the  teachers  remain  in  the 
business  of  teaching  only  a  .short  time.  The  latter  part  of  the  table 
shows  that  those  who  do  remain  in  the  business  of  teaching  flit  from  one 
position  to  another  with  great  frequency. 

There  is  no  problem  in  the  administration  of  education  that  needs 
the  attention  which  this  problem  requires.  The  State  and  the  local 
districts  should  hesitate  at  no  expense  and  no  effort  to  change  this  sit- 
uation. It  is  impossible  to  take  care  of  the  enormous  responsibilities 
laid  upon  schools  in  developing  the  youth  of  -the  country  without  a  change 
in  this  respect.  Financial  rewards  and  standards  should  be  so  set  that 
teachers  could  look  forward  to  their  work  in  education  as  a  life  career 
which  would  demand  all  of  their  enthusiasm  and  energy.  These  induce- 
ments should  be  so  strong  as  to  justify  them  in  making  adequate  academic 
and  professional  preparation.  Not  only  should  they  be  encouraged  but 
the  school  systems  of  the  State  should  be  so  organized  that  the  smaller 
schools  should  not  suffer  as  they  do.  A  teacher  should  be  able  to  find  a 
career  almost  anywhere,  in  small  schools  as  well  as  in  large  ones.  In  no 
other  way  can  the  vital  interests  of  the  children  be  conserved. 

The  information  shown  in  the  preceding  table  is  reinforced  by  the 
information  reported  under  Item  19  of  Form  2.  This  information  is 
tabulated  in  Table  LIL 

The  information  in  this  table  is  set  up  with  the  side  heads  and  the 
top  heads  reversed  from  the  plan  used  in  the  preceding  table.  The  table 


161 


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provides  information  irom  455  school  systems  and  from  8,146  teachers. 
This  includes  both  the  elementary  and  the  high  school  teachers.  Of  the 
8,146  teachers  2,120  are  teaching  for  their  first  year,  that  is  26  per  cent 
of  the  teachers  of  the  State  are  teaching  their  first  year.  There  is  a 
larger  percentage  than  in  the  preceding  table  of  teachers  who  have  had 
20  or  more  years  of  experience,  that  is,  7.57  per  cent.  This  table  con- 
tributes no  new  information  to  our  study  but  is  included  as  a  verification 
of  the  previous  part  of  the  study.  It  will  be  noticed  in  this  table  also 
that  the  larger  the  high  school  the  longer  the  experience  of  the  teachers. 
It  will  be  noted  in  this  table  that  the  experience  of  the  township  high 
school  teachers  is  shorter  than  that  reported  for  the  city  teachers,  but 
the  teachers  reported  under  the  city  high  schools  include  all  the  teachers 
in  the  system,  both  elementary  and  secondary.  The  previous  table 
showed  that  the  length  of  service  of  township  high  school  teachers  and 
city  high  school  teachers  was  the  same,  hence,  we  can  readily  infer  from 
this  table  that  elementary  school  teachers  remain  in  their  positions 
longer  than  high  school  teachers. 

Under  Item  43  of  the  Approval  Blank  information  was  reported  on 
the  amount  of  work  performed  by  teachers.  This  information  is  tab- 
ulated in  Table  LIU. 

In  this  table  there  is  a  column  for  the  number  of  schools  which  re- 
port on  this  section,  which  is  412.  The  number  of  schools  reporting  this 
item  is  307.  The  total  number  of  teachers  involved  in  this  part  of  the 
study  is  1,801. 

The  table  shows  the  number  of  classes  taught  daily.  In  the  proper 
columns  are  tabulated  the  number  of  teachers  teaching  a  certain  num- 
ber of  classes  daily,  as  for  example,  the  number  and  percentage  of  teach- 
ers who  teach  4  classes  daily,  and  so  forth.  It  will  be  noted  that  the 
small  high  schools  tend  to  teach  6  classes  daily  whereas  the  large  high 
schools  tend  to  teach  5  daily.  The  influence  of  the  North  Central  Asso- 
ciation of  Colleges  and  Secondary  Schools  is  noted  here,  since  the  asso- 
ciation requires  that  the  teacher  shall  teach  not  more  than  six  classes 
per  day  and  recommends  a  limit  of  five. 

In  examining  Class  A  it  will  be  noted  that  a  relatively  large  per  cent 
of  the  teachers  teach  5  classes  or  less.  Examining  the  situation  as  a 
whole,  we  note  that  39  per  cent  of  the  teachers  of  the  State  teach  5 
periods  per  day  and  35.6  per  cent  teach  6  periods  per  day.  Comparing 
the  city  high  schools  and  the  township  high  schools,  it  is  noted  that  the 
larger  proportion  of  the  township  high  school  instructors  teach  5  periods 
per  day  or  less. 

As  to  the  number  of  subjects  taught  daily,  the  information  pro- 
vided on  this  blank  was  grouped.  English  is  tabulated  as  one  subject. 
History,  whether  Ancient,  Medieval  and  Modern  or  American,  is  grouped 
as  one  subject.  Civics  and  Economics  are  grouped  with  the  History. 
Science  is  grouped  as  a  single  subject.  Therefore,  the  subjects  under 
which  this  tabulation  is  made  are  as  follows:  English,  Mathematics, 
Language,  History,  Science,  Vocational  Subjects.  The  information  is 
shown  in  Table  LIV. 

The  number  of  teachers  involved  in  this  study  is  1,808.  It  is  clear 
that  the  smaller  schools  require  their  teachers  to  teach  a  larger  range 


164 


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of  subjects  and  that  the  tendency  in  the  larger  schools  is  to  keep  them 
teaching  a  single  group  of  subjects.  In  every  case  the  township  high 
schools  provide  facilities  so  that  their  teachers  teach  the  smaller  number 
of  subjects,  usually  one  subject. 

We  now  come  to  that  part  of  our  chapter  which  deals  with  the 
provisions  which  the  schools  make  for  teaching,  and  the  first  topic  to  be 
discussed  is  the  number  of  teaching  positions  in  the  schools  of  the 
various  sizes.  This  information  was  reported  under  Item  11  of  Form 
2  and  is  tabulated  in  Table  LV. 

School  authorities  often  wish  to  know  whether  or  not  their  local 
practice  conforms  with  that  of  other  schools  of  their  own  size  and  rank. 
Table  LV  gives  this  information  based  upon  the  reports  from  449  schools 
and  involving  2,828  teachers.  The  table  shows  the  number  of  teaching 
positions  held  in  the  various  institutions  by  men,  the  number  of  teaching 
positions  held  by  women,  and  the  total  number  of  teaching  positions.  It 
displays  the  number  of  schools  having  1  teacher,  2  teachers,  3  teachers, 
etc.,  occupied  by  men,  in  the  appropriate  columns.  For  example,  read- 
ing down  the  column  headed  city  high  school  Class  B  we  note  that  there 
are  15  schools  having  one  position  occupied  by  a  man,  32  having  two 
positions  occupied  by  men,  14  having  three  positions  occupied  by  men, 
etc.  The  table  may  be  similarly  read  throughout.  It  gives  the  same 
information  for  women,  and  also  at  an  appropriate  point  in  the  table  the 
same  information  regarding  the  total  number  of  teaching  positions  in 
each  one  of  these  three  categories,  that  is,  for  men,  women  and  total. 
The  median,  the  first  quartile  and  the  third  quartile  are  calculated  and 
shown  at  the  proper  points  in  the  table. 

On  reading  this  table  further  we  note  that  in  the  city  high  schools 
of  Class  A  there  are  183  schools  that  have  only  one  position  occupied  by 
a  man.  There  are  84  schools  that  have  one  position  occupied  by  a 
woman,  and  there  are  29  schools  all  told  that  have  only  one  teaching 
position.  This  part  of  the  table  shows  that  there  are  a  relatively  large 
number  of  schools  in  the  State  who  are  trying  to  conduct  four-year 
courses  with  a  very  meager  teaching  force. 

Examining  that  part  of  the  table  which  refers  to  men  and  women,  a 
fruitful  comparison  can  be  made.  Examining  Class  D,  we  notice  that 
the  median  number  of  men  in  the  city  high  schools  is  6  and  the  median 
number  of  women  is  9.  In  the  township  high  schools  we  note  that  the 
median  number  of  men  is  8  and  the  median  number  of  women  is  11. 
By  making  a  similar  comparison  throughout  the  table  we  note  that  the 
township  high  schools  surpass  the  city  high  schools  in  the  number  of  men 
employed.  Calculating  the  total  we  find  that  the  proportion  of  men 
employed  in  the  high  schools  is  40.6  per  cent.  This  is  a  much  larger 
proportion  than  is  sometimes  realized.  Individual  schools  vary  greatly 
in  this  respect.  Probably  the  best  policy  all  around  is  for  a  high  school 
to  aim  to  have  an  equal  proportion  of  men  and  women. 

School  authorities  wishing  to  know  what  is  the  practice  of  schools  of 
their  own  size  and  standard  in-  the  matter  of  the  number  of  teaching 
positions  provided  can  secure  this  information  in  the  latter  part  of  this 
table.  For  example,  in  Class  D  the  median  number  of  teaching  positions 


167 


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170 

in  the  township  high  schools  is  18 ;  the  middle  50  per  cent  of  the  schools 
of  this  class  have  from  16  to  22  teaching  positions.  Now  a  local  situa- 
tion may  demand  more  teaching  positions  even  than  the  third  quartile 
indicates.  This  must  be  determined  not  only  upon  the  basis  of  the  prac- 
tice of  other  schools  but  upon  a  consideration  of  conditions  within  the 
local  school.  If  it  is  desired  that  the  local  school  extend  its  course  of 
study  and  provide  a  wide  range  of  electives,  this  means  a  larger  number 
of  teaching  positions.  If  the  school  wishes  to  confine  itself  to  a  rather 
conventional  course  with  narrow  opportunities  for  electives,  it  can  do  so 
with  a  relatively  small  number  of  teachers.  However,  the  trend  in  edu- 
cation is  all  for  providing  the  widest  opportunity  for  pupils  in  the  way 
of  a  broad  choice  of  electives. 

The  practice  of  the  schools  in  the  matter  of  the  distribution  of  sal- 
aries between  the  men  and  the  women  is  shown  in  Table  LYI. 

This  table  is  compiled  from  information  reported  under  Item  13  of 
Form  2.  This  table  shows  the  average  expenditure  for  the  employment 
of  men  teachers  and  women  teachers  in  the  different  groups  of  schools. 
It  also  shows  the  medians,  the  first  quartiles  and  the  third  quartiles.  In 
addition  to  this  there  is  a  column  which  shows  the  percentage  of  the  sal- 
ary appropriation  which  is  paid  to  men  and  the  proportion  which  is  paid 
to  women. 

An  examination  of  the  table  in  detail  will  give  the  information  for 
city  high  schools  and  township  high  schools  of  any  size.  The  total  shows 
that  49.6  per  cent  of  the  total  money  appropriated  for  salaries  is  paid  to 
women.  Comparing  this  table  with  the  preceding  one  in  which  40.6  per 
cent  of  the  teaching  positions  are  occupied  by  men,  since  an  almost  equal 
amount  of  money  is  paid  to  men  and  women,  the  fact  which  is  generally 
known  without  statistical  calculation  is  reinforced,  namely,  that  larger 
salaries  are  paid  to  men  than  to  women. 

In  the  early  part  of  this  chapter  the  point  was  made  with  emphasis 
that  one  of  the  important  considerations  in  lengthening  the  tenure  of 
office  of  teachers  and  encouraging  them  to  remain  in  the  profession  is 
adequate  provision  with  reference  to  salary.  The  practice  of  the  high 
schools  of  the  State  in  this  particular  was  reported  in  Item  29  of  Form 
2.  This  information  was  collated  in  Table  LVII.  The  situation  in 
this  table  is  shown  graphically  in  Figure  24.  The  salaries  are  divided 
into  groups,  $200  to  $299,  $300  to  $399,  and  so  forth.  The  number  of 
teachers  in  each  salary  group  is  placed  opposite  that  group  in  the  proper 
column  as  regards  the  size  and  kind  of  school  in  which  they  teach.  There 
are  455  schools  involved  in  this  investigation,  and  2,821  teachers. 

It  will  be  noted  that  in  every  case  the  township  high  school  pays  a 
higher  salary  than  the  city  high  school.  The  median  salary  in  the  city 
high  schools  of  Class  B  is  $774;  the  median  salary  in  the  township  high 
schools  of  this  group  is  $819,  and  so  on  throughout  the  table.  Another 
example  shows  that  in  Class  D  the  median  salary  for  the  township  high 
school  teachers  is  $1,127;  the  middle  50  per  cent  of  the  teachers  in  this 
class  of  schools  receive  from  $945  to  $1,362.  The  median  salary  in  all 
the  high  schools  is  $886,  and  the  middle  50  per  cent  receives  from  $692 
to  $1,150. 


171 


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173 

It  is  very  clear  that  with  meager  salaries  of  this  kind  teachers  can- 
not be  expected  to  make  the  wide  preparation  which  the  importance  of 
their  work  demands.  School  authorities  in  deciding  upon  their  salary 
schedule  can  best  learn  the  best  practices  of  schools  of  their  size  and  rank 
by  giving  attention  to  the  salary  range  from  the  median  to  the  third 
quartile.  It  is  no  credit  to  an  institution  to  undertake  to  pay  lower 
salaries  than  others  of  its  group.  It  should  rather  seek  to  become  a  part 
of  the  progressive  section  of  its  group,  raising  the  salary.  If  it  pays  a 
salary  between  the  median  and  the  third  quartile,  it  will  be  imitating  the 
example  of  the  most  progressive  portion  of  that  group,  and  if  it  can  af- 
ford to,  it  ought  to  set  the  pace  by  going  beyond  the  third  quartile. 


Fig.  24.— Salaries  -of  teachers.  The 
high  schools  are  classified  at  the  bottom 
according  to  the  number  enrolled.  The 
upright  bars  represent  the' range  of  sal- 
aries from  the  first  quartile  to  the  third 
quartile.  The  hollow  bars  represent  the 
city  high  schools  and  the  solid  bars  the 
township  high  schols.  M  represents  the 
median  salary  in  each  case.  An  equalized 
scale  of  salaries  is  shown  at  the  left  and 
a  scale  of  medians  at  the  right. 


M  1422 


500 


'o,      <V 


In  order  to  determine  the  relative  position  of  the  township  high 
schools  as  compared  with  all  of  the  high  schools  of  the  Middle  West  in- 
formation provided  in  the  preliminary  tabulations  of  Mr.  Counts  was 
collected,  and  is  here  shown  in  Table  LVIII. 


TABLE  LVIII— MEDIAN  SALARIES  OF  TEACHERS— (NORTH  CENTRAL  BLANK). 


A 

B 

C 

D 

E 

F 

Total. 

North  Central  

817 

774 

813 

875 

1,145 

1,327 

916 

11  Imois  outside  of  Chicago 

881 

803 

907 

1,004 

1,005 

1,244 

998 

Township  High  School 

679 

849 

961 

1,086 

1,437 

1,381 

1,088 

174 

Three  classes  of  schools  are  shown  here.  First,  all  of  the  schools  of 
the  North  Central  Association,  involving  about  1,000;  all  of  the  high 
schools  in  the  State  outside  of  Chicago,  150  in  number;  and  the  township 
high  schools  of  Illinois  who  are  on  the  accredited  list,  in  number  39. 

The  medians  for  these  groups  of  schools  are  shown.  In  every  group 
it  is  noted  that  Illinois  high  schools  pay  larger  salaries  than  the  North 
Central  Association  schools,  and  the  township  high  schools  pay  larger 
salaries  than  the  otjier  schools  of  Illinois. 

Certain  very  definite  conclusions  may  be  drawn  from  the  facts  so 
far  submitted  in  this  chapter.  In  the  first  place,  the  larger  the  school 
the  greater  the  academic  training  of  the  teachers  employed  in  it.  The 
township  high  school  teachers  acquire  greater  academic  training  than  the 
city  high  school  teachers.  The  most  striking  fact  shown  in  this  chapter 
is  the  relatively  short  experience  of  the  high  school  teachers  of  the  State 
and  corollary  to  that  the  exceedingly  short  time  the  teachers  spend  in 
one  position.  It  was  found  that  the  median  length  of  the  total  experi- 
ence of  the  teachers  in  the  State  is  four  years.  It  was  also  found  that 
the  median  length  of  high  school  experience  of  the  teachers  of  the  State 
is  3  years.  It  was  found  that  the  median  length  of  time  a  teacher  spends 
in  a  given  position  is  2  years.  It  was  also  found  that  the  elementary 
teachers  in  the  State  have  a  longer  experience  and  a  longer  tenure  of 
office  than  the  high  school  teachers.  The  teachers  in  the  larger  schools 
teach  a  smaller  number  of  periods  per  day  and  a  smaller  number  of  sub- 
jects than  the  teachers  in  the  smaller  schools.  The  township  high  school 
teachers  teach  a  smaller  number  of  classes  per  day  and  a  smaller  number 
of  subjects  than  the  city  high  school  teachers. 

As  to  the  relation  existing  between  the  number  of  men  and  women 
as  instructors  in  the  high  schools  of  the  State,  it  is  found  that  there  are 
more  women  than  men.  A  little  over  40  per  cent  of  the  teaching  posi- 
tions in  the  State  are  occupied  by  men.  The  male  teachers  of  the  State 
receive  almost  as  much  money,  however,  as  the  women,  thus"  showing 
that  the  salaries  of  the  men  are  superior  to  those  of  the  women.  It 
was  also  shown  that  the  salaries  paid  the  township  high  school  teachers 
are  greater  than  the  salaries  paid  to  the  city  high  school  teachers.  It 
was  also  shown  that  the  salaries  paid  to  the  township  high  school  teachers 
are  greater  than  those  paid  to  the  teachers  of  the  North  Central  Asso- 
ciation as  a  whole,  and  also  superior  to  the  salaries  paid  to  the  teachers 
of  Illinois  high  schools.. 


175 


CHAPTER  VIII. 


THE  STUDENT  BODY. 

The  next  important  group  which  engages  our  attention  in  the  study 
of  the  personnel  of  the  high  school  is  the  student  body.  Beference  has 
already  been  made  in  Chapter  I  to  the  enrollment,  and  Table  I  was  ex- 
hibited for  the  purpose  of  showing  the  method  of  this  investigation. 
Table  I  is  here  repeated  as  Table  LIX.  in  order  that  the  information  in 
this  chapter  may  be  complete. 

As  was  noted  in  the  preliminary  discussion  of  this  table,  the  en- 
rollment in  each  of  the  classes  is  slightly  higher  in  the  case  of  the  town- 
ship high  schools  than  in  the  case  of  the  city  high  schools,  with  the 
exception  of  Class  C,  in  which  the  city  high  school  enrollment  is  larger. 

The  information  shown  in  Table  LX  is  shown  with  finer  subdivi- 
sions than  in  Table  LIX.  The  groups  are  1  to  10,  11  to  20,  and  so  forth. 

The  facts  given  in  this  table  are  shown  graphically  in  Figure  25. 
They  are  commented  on  in  the  discussion  of  Table  I  in  Chapter  I. 

It  will  be  noticed  here  that  there  are  a  number  of  very  small  schools. 
For  example,  there  are  37  city  high  schools  of  Class  A  which  have  an 
enrollment  of  only  21  to  30;  there  are  50  of  them  having  an  enrollment 
of  only  41  to  50.  There  are  9  township  high  schools  having  an  enroll- 
ment of  only  31  to  40,  and  4  township  high  schools  having  an  enrollment 
of  41  to  50^ 

In  recent  investigations  it  has  been  common  to  base  all  sorts  of 
comparisons  upon  the  median  enrollments  of  schools  of  various  sizes. 
Perhaps  this  is  justifiable  because  of  the  fact  that  although  a  student  may 
remain  in  the  school  for  only  a  short  time,  the  organization  must  nec- 
essarily be  adjusted  to  him,  and  he  is  an  expensive  factor  that  must  be 
taken  care  of  in  the  school. 

In  Table  LXI  information  is  given  regarding  average  attendance. 

The  sizes  and  kinds  of  schools  are  shown  at  the  side  of  the  table. 
They  are  again  classified  as  to  enrollment  at  the  top  of  the  table.  Read- 
ing the  table,  we  note  that  there  are  252  city  high  schools  of  Class  A  and 
44  township  high  schools  that  have  an  average  daily  attendance  of  1  to 
100,  and  so  on  throughout  the  table. 

The  average  attendance  is  found  by  dividing  the  whole  number  of 
days  of  attendance  by  the  number  of  days  school  is  in  session.  An  ex- 
amination of  the  table  will  show  that  the  same  relative  condition  exists 
in  the  matter  of  average  attendance  as  in  the  case  of  enrollment  dis- 
cussed in  the  preceding  tables.  In  each  case  except  in  Class  C  the  aver- 
age daily  attendance  is  higher  in  the  case  of  the  township  high  schools 
than  in  the  city  high  schools.  The  quartile  deviation  is  larger  in  the 
case  of  the  township  high  schools  than  in  the  case  of  the  city  high  schools 


176 


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Fig.  25. — Enrollment.  The  high  schools 
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range  of  enrollment  from  the  first  quar- 
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represents  the  median  enrollment  in  each 
case.  An  equalized  scale  of  enrollment 
is  shown  at  the  left  and  a  scale  of  me- 
dians at  the  right. 


179 


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except  in  Class  A.  This  deviation  indicates  that  there  probably  is  a 
little  greater  irregularity  in  the  case  of  the  township  than  in  the  case  of 
the  city  high  schools. 

In  Item  14  of  Form  2  the  total  days'  attendance  of  all  the  pupils 
enrolled  was  reported.  This  information  is  tabulated  in  Table  LXII. 

The  schools  are  classed  at  the  side  and  the  total  days'  attendance 
is  grouped  at  the  top.  Beading  the  table,  we  note  that  in  120  city  high 
schools  of  Class  A  the  total  days'  attendance  is  5,000  to  10,000;  in  61 
city  high  schools  of  Class  A  the  total  days'  attendance  is  10,000  to  15,000. 
It  will  be  noted  by  examining  the  medians  that  here  without  question 
the  number  of  days  of  attendance  in  the  case  of  the  township  high 
schools  is  larger  than  the  number  of  days  of  attendance  in  the  city  high 
schools.  It  should  be  said  in  this  connection  that  the  total  days'  attend- 
ance is  probably  the  best  basis  on  which  to  make  comparisons  between 
different  systems  of  schools,  as  this  attendance  is  the  same  in  different 
institutions  no  matter  what  the  size.  The  difficulty  with  total  enrollment 
is  that  the  different  schools  vary  considerably  in  this  respect  throughout 
the  year.  The  uncertain  factor  in  the  average  daily  attendance  is  that 
sometimes  Teporting  officers  calculate  it  in  a  little  different  fashion,  but 
if  the  total  days'  attendance  is  reported  there  is  very  little  chance  for 
inaccuracy.  Throughout  the  present  investigation,  however,  it  was  not 
possible  to  do  this  because  the  investigation  had  reached  fair  completion 
before  this  item  was  tabulated  and  made  available.  However,  if  later 
investigation  should  start  with  the  formulation  of  this  table,  it  would  be 
comparatively  easy  to  carry  it  out  alon'g  the  lines  suggested. 

It  was  noted  above  that  the  total  days'  attendance  depended  some- 
what upon  the  length  of  the  school  term.  Information  on  the  length  of 
the  school  term  was  reported  in  Item  3  of  Form  2,  and  is  tabulated  in 
Table  LXIII. 

In  this  table  the  number  of  schools  is  reported  in  the  first  horizontal 
column  below  the  classification  of  schools.  Then  there  is  a  column  for 
less  than  160  days,  a  column  for  160  days,  161  days,  and  so  on  until  we 
come  to  a  column  which  calls  for  the  information  in  those  schools  having 
a  term  of  over  200  days  in  length. 

In  the  lower  part  of  the  table  the  average,  the  median,  the  first 
quartile,  the  third  quartile,  and  the  quartile  deviation  are  shown.  By 
consulting  the  medians  it  will  be  seen  that  in  every  case  except  Class  E 
and  Class  B  the  township  high  schools  have  longer  terms.  The  difference, 
however,  between  the  township  high  schools  and  the  city  high  schools  in 
this  respect  is  not  very  great,  hardly  enough  to  be  of  sufficient  importance 
to  predicate  any  conclusions  as  to  the  effect  of  the  length  of  the  school 
term  upon  the  efficiency  of  the  school. 

The  matter  of  the  amount  of  time  spent  by  the  recitations  of  various 
classes  upon  their  work  is  an  important  one.  There  is  a  tendency  in 
educational  circles  at  the  present  time  to  lengthen  the  school  year  and  to 
lengthen  the  school  day,  as  well  as  to  lengthen  the  recitation  periods. 


181 


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184 


In  order  that  this  may  be  done  intelligently  an  investigation  reaching  a 
wide  area  needs  to  be  made  covering  not  only  the  practice  of  the  various 
institutions  in  this  respect  but  also  investigating  the  efficiency  of  schools 
which  actually  increases  the  length  of  time  spent.  We  probably  have 
enough  information  to  give  us  adequate  data  for  conclusions  as  to  the 
present  practice  in  this  respect.  The  information  at  hand  shows  that 
schools  of  a  given  size  and  standard  have  nearly  the  same  custom  in  this 
respect. 

In  order  to  compare  the  schools  at  present  under  consideration  in 
this  investigation  with  others  the  information  based  on  the  preliminary 
tabulations  m'ade  by  Mr.  Counts  in  his  study  of  the  North  Central  Asso- 
ciation was  tabulated.  This  tabulation  is  shown  in  Table  LXIV. 

TABLE  LXIV— TIME  UNITS— (NORTH  CENTRAL  BLANK). 


North  Central. 

Illinois. 

Twp.  H.  S. 

Median. 

Quartile 
Range. 

Median. 

Quartile 
Range. 

Median. 

Quartile 
Range. 

Number  of  weeks  of  5  days  each 

38 

7 

51 
43 

36-39 

7-8 

5-5f 
40-45 

36 

7 

5t 

42 

36-38 
7-7 

5i-53 
40-45 

38 

7 

a 

42* 

37-39 

6-8 

aa 

Number  of  recitations  in  daily  program- 
Number  of  60  minute  hours  in  daily  pro- 
grams   

Number  of  minutes  in  recitation  periods 

This  table  covers  first  the  number  of  weeks  of  5  days  each,  the  num- 
ber of  recitations  in  the  daily  program,,  the  number  of  60-minute  hours 
in  the  daily  program.,  and  the  number  of  minutes  in  the  recitation 
periods.  It  is  a  comparison  between  the  practice  in  the  North  Central 
Association,  the  schools  of  Illinois,  and  the  township  high  schools  of  Illi- 
nois. In  each  group  of  schools  the  median  and  the  quartile  range  is  cal- 
culated. The  'quartile  range  indicates  the  practice  of  the  middle  50  per 
cent  of  the  group.  For  example,  in  the  case  of  the  North  Central  Asso- 
ciation the  quartile  range  is  indicated  as  36  to  38,  which  means  that  the 
first  quartile  is  36  and  the  third  quartile  is  39,  that  is,  the  number  of 
weeks  in  this  group  of  schools  in  the  school  term  is  36  to  39. 

Comparing  the  schools  in  detail  it  is  noted  that  the  median  length 
of  school  term  in  the  North  Central  Association  is  38  weeks,  for  the 
schools  of  Illinois  36  weeks,  and  for  the  township  high  schools  38  weeks. 
The  median  number  of  recitations  per  week  is  the  same  in  each  case, 
namely,  7.  The  number  of  60-minute  hours  is  practically  the  same, 
being  either  5%  or  5%.  There  is  no  important  difference  in  the  prac- 
tice of  these  schools  in  the  number  of  minutes  in  the  recitation  period. 
The  number  of  minutes  is  either  42,  42%  or  43.  This  table  shows  the 
remarkable  uniformity  existing  in  the  North  Central  territory  in  all 
•classes  and  grades  of  schools. 

In  the  preceding  paragraphs  we  have  been  discussing  the  personnel 
of  the  school  as  a  whole  with  ~¥ery  little  attention  to  the  constitution 
of  the  student  body.  This  latter  matter  will  now  engage  us  for  a  consid- 
erable part  of  the  remainder  of  the  chapter. 


185 

Under  Item  8  of  Form  2  information  regarding  tuition  pupils  in  the 
high  schools  of  the  State  was  reported,  and  this  information  is  tabulated 
in  Table  LXV. 

The  tuition  pupils  are  arranged  in  the  group  at  the  top  as  follows : 
1-10,  11-20,  21-30,  etc.  The  number  of  schools  having  a  given  number 
group  of  tuition  pupils  is  placed  before  in  the  appropriate  vertical  column 
opposite  the  size  and  kind  of  school  to  which  the  given  group  belongs. 

It  will  l^e  noted  that  in  each  class  of  schools  the  township  high 
schools  have  a  smaller  number  of  tuition  pupils  than  the  city  high 
schools.  For  example,  in  Class  D  the  median  number  of  tuition  pupils 
in  city  high  schools  is  59,  and  in  50  per  cent  of  the  schools  the  range  of 
tuition  pupils  is  from  35  to  82 ;  whereas  in  the  case  of  township  high 
schools  the  median  number  is  37,  and  50  per  cent  of  the  schools  of  this 
group  have  from  25  to  53  tuition  students.  This  is  indicative  of  two 
things.  First,  that  the  township  high  schools  with  their  wider  range  of 
territory  more  nearly  supply  the  needs  of  prospective  high  school  students 
in  the  vicinity  in  which  they  are  located.  In  other  words,  the  pupils  who 
naturally  belong  to  these  schools  are  in  actual  attendance  and  their 
places  of  residence  are  included  in  the  district.  In  the  city  high  schools 
there  are  a  large  number  of  students  coming  from  outside  of  the  district 
who  really  belong  within  the  school  sphere  so  to  speak  of  the  high  school 
in  question.  Undoubtedly  there  are  many  other  prospective  high  school 
students  in  the  neighborhood  of  city  high  schools  who  would  be  brought 
into  the  city  high  schools  if  .the  immediate  environs  of  that  high  school 
which  naturally  belonged  in  the  high  school  district  were  actually  in- 
cluded in  the  high  school  district.  Here  is  need  for  very  definite  legis- 
lation. A  large  number  of  prospective  high  school  students  in  the  State 
do  not  enjoy  high  school  advantages,  who  have  a  high  school  near  enough 
to  be  available  to  them  but  the  organization  of  the  high  school  districts 
does  not  permit  it.  It  seems  unfoTtunate  that  this  condition  is  allowed 
to  continue.  There  are,  of  course,  certain  territories  in  the  State  of 
Illinois  where  at  present  there 'is  no  high  school  within  reach  of  pros- 
pective high  school  students.  In  such  cases  wherever  it  is  possible  to  do 
so  high  schools  should  be  organized  and  high  school  districts  set  up.  But 
we  have  revealed  in  this  study  a  condition  which  is  known  to  many  edu- 
cators in  the  State,  namely,  that  pupils  who  properly  belong  to  a  certain 
high  school  are  not  included  in  the  high  school  district.  It  is  true  that 
the  legislative  difficulties  in  the  way  of  making  provision  for  this  are 
severe,  yet  by  a  proper  study  of  the  matter  it  would  seem  that  these 
obstacles  might  be  overcome. 

The  distribution  of  the  pupils  throughout  the  various  classes  in  the 
high  school  was  reported  in  Item  2  of  Form  2.  This  information  is  tab- 
ulated in  Table  LXVI. 


186 


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187 


TABLE  LXVI— DISTRIBUTION   OF  THE   ENROLLMENT  IN   ILLINOIS  IN   THE   FOUR 
HIGH  SCHOOL  YEARS— (FORM  2,  NO.  2). 


5 
If 
|1 

9 

10 

11 

12 

Total. 

No. 

Per 

cent. 

No. 

Pe 
cent. 

No. 

Per 
cent. 

No. 

Per 
cent. 

A 

1-100 

B 

101-200 

C 

201-300 

D 

301-500 

E 
501-Over 

City  H.  S 

250 
46 

296 

69 
22 

91 

11 
13 

4,909 
1,040 

38.3 
41.1 

3,242 
605 

25.3 

23.9 

2,691 
531 

21 
21 

1,990 
356 

15.5 
14.1 

12.832 
2,532 

Twp.  H.  S  

Total 

5,949 

3,522 
1,321 

38.7 

38.3 
42.4 

3,847 

2,291 

776 

25 

24.9 
24.9 

3,222 

1,892 
570 

21 

20.6 
18.3 

2,346 

1,482 
452 

15.7 

16.1 
14.5 

15,364 

9,187 
3,119 

City  H.  S... 

Twp.  H.  S 

Total 

4,843 

1,131 
1,320 

39.4 

43.1 
42.8 

3,067 

613 
790 

24.9 

23.3 
25.6 

2,462 

474 
561 

20 

18.1 
18.2 

1,934 

408 
416 

15.7 

15.5 
13.5 

12,306 

2,626 
3,087 

City  H.  S 

Twp  H  S 

Total     .... 

24 

11 
13 

24 
1( 

19 

357 
97 

2,451 

1,529 
2,002 

42.9 

38.4 
41.6 

1,403 

1,011 
1.157 

24.6 

25.4 
24.1 

1,035 

111 
885 

18.1 

19.5 
18.4 

824 

663 
765 

14.4 

16.7 
15.9 

5,713 

3,980 
4,809 

City  H.  S  

Twp.  H.  S 

Total  

3,531 

5,251 
1,250 

40.2 

39.8 
39.5 

2,168 

3,512 
836 

24.7 

26.6 
26.4 

1,662 

2,453 
525 

18.9 

18.6 
16.6 

1,428 

1,965 
552 

16.1 

14.9 
17.5 

8,789 

13,181 
3,163 

City  H  S 

Twp.  H.  S  

Total  

6,501 

16,342 
6,933 

39.8 

39.1 
41.5 

4,348 

10,669 
4,164 

26.6 

25.5 
24.9 

2,978 

8,287 
3,072 

18.2 

19.8 
18.3 

2,517 

6,508 
2,541 

15.4 

15.6 
15.2 

6,344 

41,806 
16,710 

Total  City  H.  S... 
Total  Twp.  H.  S.  . 

Grand  total.  .  . 

454 

23,275 

39.8 

14,833 

25.3 

11,359 

]9.4 

9.049 

15.5 

58,516 

This  table  shows  the  number  and  percentage  of  students  in  each  of 
the  four  years  in  high  school  in  the  various  groups.  The  remarkable 
fact  coming  out  of  this  table  is  that  the  proportion  of  students  in  the 
various  classes  is  remarkably  uniform  throughout  the  table. 

It  will  be  seen,,  taking  the  State  as  a  whole,  that  39.8  per  cent  of  the 
students  in  the  high  schools  are  in  the  first  year  class,  25.3  per  cent  are 
in  the  second  year  class,  19.4  per  cent  are  in  the  third  year  class,  and 
15.5  per  cent  are  in  the  fourth  year  class. 

It  will  be  noted  also  in  inspecting  the  totals  that  the  township  high 
schools  have  a  larger  proportion  of  their  pupils  in  the  first  year  than  the 
city  high  schools.  Although  the  difference  is  not  a  large  one,  it  would 
seem  that  the  reason  for  this  is  the  fact  that  a  good  many  of  the  town- 
ship high  school  students  live  some  distance  away  from  the  high  school 
building,  and  that  this  fact  has  somewhat  of  a  bearing  upon  their  attend- 
ance. 

It  is  interesting  to  compare  this  information  with  other  informa- 
tion collected  from  the  reports  of  the  North  Central  Association  in  1913. 
This  information  for  1913  is  tabulated  in  Table  LXVII. 


188 

TABLE  LXVII-DISTRIBUTION   OF  THE   ENROLLMENT   IN    THE   NORTH  CENTRAL 
ASSOCIATION  IN  THE  FOUR  HIGH  SCHOOL  YEARS— (NORTH  CENTRAL  BLANK). 


North 
Central. 

Illinois. 

Twp.  H.  S. 

Per  cent  in  fourth  year  

15  9 

15  2 

15  9 

Per  cent  in  third  year 

19  5 

18  4 

20  1 

Per  cent  in  second  year  

26  5 

27  2 

26  7 

Per  cent  in  first  year  

38  1 

39  2 

37  1 

It  shows  the  percentage  of  students  in  each  of  the  four  years  in  the 
case  of  the  North  Central  Association  schools,  the  Illinois  high  schools, 
and  the  township  high  schools.  Eeports  in  this  table,  however,  include 
only  those  schools  which  are  accredited  by  the  North  Central  Association. 
As  would  be  expected,  the  proportion  of  people  in  the  first  year  in  this 
group  of  high  schools  is  smaller  than  in  the  high  school  investigated  by 
the  present  study.  It  will  be  noted  that  in  Table  LXI  the  information 
covers  454  schools.  A  large  number  of  them  are  accredited  neither  by 
the  North  Central  Association  nor  by  any  college. 

As  a  part  of  this  distribution  of  students  throughout  the  four  years 
it  is  interesting  to  note  the  situation  regarding  graduates.  This  item 
was  reported  in  Item  7  of  Form  2  and  is  tabulated  in  Table  LXVIII. 

The  number  of  graduates  is  grouped  to  the  top  as  1-4,  5-9,  10-14, 
etc.  The  number  of  schools  having  graduates  to  the  number  indicated  by 
the  groups  is  placed  below  the  number  groups.  For  example,  reading 
the  horizontal  column  head  City  High  Schools,  Class  A,  we  note  that  70 
schools  had  1-4  graduates,  106  schools  had  5-9,  50  schools  had  10-14, 
and  so  forth.  In  similar  manner  the  entire  table  may  be  read. 

As  is  natural,  the  number  of  graduates  increases  with  the  size  of 
the  school.  It  will  be  noted,  however,  that  in  every  case  except  Class  E 
the  number  of  graduates  in  the  case  of  the  township  high  schools  is  smaller 
than  in  the  city  high  schools.  This  conclusion  is  based  upon  a  considera- 
tion of  the  medians  shown  and  a  study  of  the  practice  of  the  middle  50 
per  cent  of  the  schools.  For  example,  in  considering  Class  D  it  will  be 
noted  that  the  median  number  of  graduates  for  city  high  schools  of  this 
size  is  49.  The  middle  50  per  cent  of  the  schools  of  this  size  graduate 
from  44  to  65.  On  the  other  hand,  the  median  number  of  graduates 
of  township  high  schools  of  Class  D  is  46.  The  middle  50  per  cent  of 
the  schools  graduate  from  39  to  58.  It  should  be  said  in  this  connection 
that  this  information  applies  to  the  graduates  of  1915.  It  should  also 
be  said  in  this  connection  that  a  school  can  get  some  idea  as  to  whether  or 
not  it  has  the  normal  number  of  graduates  by  a  study  of  this  table.  It 
can  readily  determine  whether  its  number  of  graduates  is  near  the 
median  of  the  schools  of  its  size  and  standing.  If  its  number  of  grad- 
uates rather  constantly  is  between  the  median  and  the  third  quartile, 
it  is  very  certain  that  the  conditions  in  the  school  are  satisfactory  as  to 
the  number  of  students  who  are  passing  through  the  school  successfully. 

Occasionally  throughout  this"  study  it  has  been  interesting  to  check 
information  from  other  quarters.  Tables  have  been  constructed  which 
have  not  been  included  in  this  study,  hence,  their  only  value  has  been  to 


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check  the  information  which  is  tabulated  and  herein  published.     In  this 
connection  Table  LXIX  is  presented. 

TABLE  LXIX— HIGH  SCHOOL  GRADUATES  OF  THE  YEAR   1915— (SPECIAL    REPORT). 


A 

1-100 

B 

101-200 

C 

201-300 

D 

301-500 

E 
501-Over. 

Total. 

Total  schools                           

39 

24 

14 

12 

4 

93 

Graduates— 
1    4 

14 

1 

15 

5-  9 

16 

1 

17 

10-14 

8 

6 

1 

15 

15-19 

1 

6 

1 

8 

20-24 

5 

1 

6 

25-29 

5 

4 

9 

30-34 

1 

1 

35-39 

5 

3 

8 

40-44 

1 

1 

1 

3 

45-49 

2 

2 

50-54 

1 

1 

55-59 

1 

1 

60-64 

1 

65-69 

70-74 

1 

1 

75-79 

80-84 

1 

1 

85-89 

1 

1 

90-94 

95-99 

100-Over 

3 

3 

Total 

39 

24 

14 

12 

4 

93 

Average 

6 

18 

30 

48 

119 

Median 

6 

174 

30i 

46 

118i 

First  Quartile  

3 

14 

24J 

39 

95 

Third  Quartile 

9 

26 

381 

76 

3 

6 

7 

181 

In  order  to  get  information  of  a  certain  type  in  one  of  the  circulars 
sent  out  from  the  State  Superintendent's  office  in  the  spring  of  1916,  a 
report  was  made  concerning  the  number  of  graduates  for  1915. 

These  were  voluntary  reports  and  did  not  cover  the  entire  field.  It 
did  cover,  however,  the  condition  in  93  township  high  schools.  The  grad- 
uates of  1915,  based  on  this  report  are  shown  in  this  Table  LXIX.  An 
examination  of  the  medians  here  shown  indicates  that  the  medians  found 
here  are  almost  the  same  as  in  Table  LXIII.  The  corroboration  of  the 
two  tables  is  very  interesting.  This  table  is  included  for  comparative 
purposes  and  has  no  other  value. 

An  important  consideration  in  studying  the  student  body  of  the  high 
school  is  to  learn  the  extent  of  the  population  in  the  district  under  21. 
This  information  was  given  under  Item  1  of  Form  2,  and  is  tabulated 
in  Table  LXX. 

We  have  here  an  opportunity  to  find  out  the  number  of  people  in  the 
various  districts  under  21  years  of  age  and  the  proportion  of  this  possible 
school  population  which  is  in  actual  attendance  in  the  high  school. 

Eeading  this  table  from  top  to  bottom,  we  find  that  there  are  13  city 
high  schools  of  Class  A  in  districts  where  there  are  less  than  100  children 
under  21  years  of  age.  There  are  71  in  districts  having  from  101  to 
200  and  so  on.  Examining  the  medians  we  notice  that,  for  example,  in 
Class  D  in  the  case  of  city  high  schools  there  are  2,789  children  less 
than  21  years  of  age.  In  the  case  of  township  high  schools  of  this  group 


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there  are  2,857  children  less  than  21  years  of  age.  In  the  case  of  city 
high  schools  in  Class  D  the  middle  50  per  cent  of  the  high  school  dis- 
tricts have  from  2,406  to  4,695  children  less  than  21.  The  middle  50 
per  cent  of  the  high  schools  of  this  size  have  in  their  districts  from  1,632 
to  4,187  children  less  than  21.  In  other  words,  .in  order  to  support  a 
high  school  of  from  300  to  500  pupils  in  the  State  of  Illinois  there  are 
likely  to  be  in  the  district  in  the  neighborhood  of  3,000  children  under  21. 

Further  inspection  of  the  table  shows  that  in  every  case  there  is  a 
larger  number  of  children  under  21  in  the  township  high  school  districts 
than  in  the  city  high  school  districts.  This,  of  course,  means  that  there 
is  a  smaller  proportion  of  the  students  going  to  high  school  in  the  town- 
ship high  school  districts  than  in  the  city  high  school  districts. 

In  the  light  of  information  that  is  to  be  brought  out  later  in  this 
study  it  is  certain  that  this  is  due  to  the  fact  that  the  township  high  school 
districts  cover  a  wider  territory  than  the  city  high  school  districts,  that 
the  population  is  not  so  centralized  as  in  the  case  of  the  city  high  schools, 
and  that  a  practical  means  of  obviating  this  difficulty  is  transportation. 
It  will  be  found  later  but  should  be  emphasized  here  that  one  of  the  most 
important  needs  in  the  educational  development  of  the  State  is  a  provi- 
sion by  law  not  only  permitting  but  requiring  school  authorities  to  trans- 
port, free  of  charge,  those  students  in  the  high  school  districts  who  are 
not  within  easy  walking  distance  of  the  building.  An  examination  of  the 
quartile  deviations  shows  a  wide  range  in  the  number  of  people  who  are 
of  school  age  in  the  various  groups.  While,  of  course,  this  table  shows 
all  the  children  under  21,  yet  children  of  school  age  would  almost  cer- 
tainly show  a  like  variation.  This  wide  variation  indicates  that  the 
communities  of  the  State  have  not  completely  settled  down  into  a  uniform 
practice  of  sending  their  children  to  high  school,  some  communities 
sending  a  large  proportion  and  other  sending  a  small  proportion  of  their 
children. 

Nevertheless  the  uniformity  is  sufficiently  established  so  that  within 
limits  it  is  possible  to  predicate  a  high  school  of  a  given  size  if  there  are 
a  certain  number  of  children  under  21.  For  example,  in  township  high 
schools  of  Class  C  the  median  number  of  children  is  2,457.  That  is, 
reading  it  the  reverse  way,  if  there  are  2,457  minors  in  a  township  dis- 
trict, the  chances  are  even  that  it  has  a  high  school  varying  in  enrollment 
from  201  to  300.  If  we  note  the  first  and  third  quartiles,  we  find  that 
the  middle  50  per  cent  of  township  high  schools  of  this  size  have  an 
underlying  population  of  minors  of  from  1,522  to  3,014. 

It  is  then  perfectly  feasible  in  laying  out  new  township  high  school 
districts  to  include  a  population  sufficiently  large  to  make  possible  a 
high  school  of  a  certain  size.  In  the  example  noted  above,  if  from 
1,522  to  3,014  minors  are  included,  it  is  reasonably  probable  that  the 
high  school  will  enroll  from  200  to  300  students.  Fifty  per  cent  of  the 
schools  in  present  practice  actually  realize  this  enrollment.  Twenty- 
five  per  cent  of  the  cases  will  enroll  less  than  200,  and  25  per  cent  more 
than  300.  Consequently,  this  information  can  be  used  in  a  practicable 
way  in  establishing  high  schools  where  it  is  the  purpose  to  include  a 
population  sufficiently  large  to  insure  a  high  school  large  enough  to  be 
efficient. 


193 

Corollary  to  this  matter  of  the  census  is  that  of  the  elementary  en- 
rollment, that  is,  that  portion  of  the  population  under  21  which  is  in 
actual  attendance.  In  this  case  in  the  elementary  schools  this  informa- 
tion is  reported  in  Item  2  of  Form  2,  and  is  tabulated  in  Table  LXXL 

This  table  is  constructed  like  the  preceding  one.  Reading  it  from 
right  to  left  as  in  the  preceding  case,  we  notice  that  there  are  46  districts 
having  city  high  schools  of  Class  A  which  show  less  than  100  enrolled 
in  the  elementary  schools.  There  are  115  city  districts  of  Class  A  hav- 
ing 101  to  200  in  the  elementary  schools,  and  so  on  throughout  the  table. 
Xote  that  the  total  elementary  enrollment  in  the  districts  covered  by  the 
436  high  schools  is  266,088. 

Examining  the  latter  part  of  the  table  it  will  be  noted  that  in  every 
case  the  elementary  enrollment  in  the  township  high  school  districts 
underlying  the  township  high  schools  is  larger  than  the  elementary  en- 
rollment contributing  to  the  city  high  schools.  An  examination  of  the 
medians  and  quartiles  brings  out  this  fact  very  clearly.  The  significance 
of  this  is  that  a  smaller  part  of  the  elementary  enrollment  in  the  under- 
lying districts  of  the  township  high  schools  attend  high  school  in  propor- 
tion to  the  number  that  attend  city  high  schools.  This  fact  is  in  con- 
formity with  that  noted  in  connection  with  the  previous  table,  and  is 
accounted  for  in  the  same  way,  namely,  that  the  township  high  schools 
include  larger  districts  and  thus  it  is  more  difficult  for  students  to  attend 
township  high  schools  than  city  high  schools.  A  note  of  caution  is  due 
here.  It  may  be  thought  in  connection  with  a  statement  of  this  kind 
that  township  high  schools  fail  to  draw  students  from  elementary  schools 
in  the  same  way  as  city  high  schools.  This  is  not  true,  because  of  the 
fact  that  if  the  township  high  schools  were  not  in  existence  a  large  pro- 
portion of  the  people  who  are  actually  attending  would  have  no  high 
school  opportunities  at  all.  This  is  borne  out  also  by  the  fact  that  there 
are  scores  of  communities  in  Illinois  that  have  no  high  school  advantages, 
and  it  is  also  supported  by  the  fact  previously  shown  in  this  chapter  that 
the  city  high  schools  have  a  larger  number  of  tuition  pupils  coming  from 
the  immediate  vicinity  from  schools  who  have  no  high  school  advantages 
of  their  own,  and  if  there  were  township  high  school  districts  covering 
these  city  districts,  there  would  not  be  so  many  tuition  students. 

In  a  way  similar  to  that  indicated  in  the  discussion  of  the  table  on 
the  school  census,  this  table  also  provides  information  on  expectancy  con- 
cerning the  size  of  the  high  school.  For  example,  if  a  proposed  district 
had  from  804  to  1,506  elementary  pupils  in  it,  it  would  be  reasonable  to 
expect  that  district  to  develop  a  high  school  having  an  enrollment  of  201 
to  300.  This  follows  because  50  per  cent  of  the  township  high  schools 
of  this  group  actually  have  from  804  to  1,506  elementary  pupils  in  their 
districts.  A  similar  calculation  could  be  made  for  schools  of  any  other 
size. 

A  still  further  item  of  information  along  this  same  line  is  noted 
in  connection  with  the  information  reported  in  Item  2  of  Form  2,  and 
is  tabulated  in  Table  LXXIL 

This  table  shows  the  number  of  people  in  the  eighth  grade  in  the 
underlying  districts  of  the  township  high  schools  and  in  the  contributing 
—13  I  H  S 


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elementary  schools  of  the  city  high  school  districts.  This  table  is  con- 
structed in  a  manner  exactly  similar  to  the  two  preceding  ones. 

Reading  this  table  from  right  to  left,  there  are  63  city  high  schools 
of  Class  A  in  which  the  contributing  elementary  school  has  from  1  to  10 
in  the  eighth  grade;  114  having  from  11  to  20  in  the  eighth  grade.  The 
table  is  thus  read  throughout. 

An  examination  of  the  latter  part  of  the  table  shows  that  the  num- 
ber in  the  eighth  grade  is  larger  in  the  case  of  the  township  high  schools 
than  in  the  city  high  schools  in  every  instance-  with  the  exception  of 
Classes  C  and  D.  For  example,  in  Class  B  the  elementary  schools  con- 
tributing to  the  city  high  schools  show  that  there  is  a  median  of  36,  an$ 
that  the  middle  50  per  cent  have  29  to  48  in  their  eighth  grades.  The 
median  number  of  eighth  grade  pupils  in  the  underlying  districts  of  the 
township  high  schools  of  Class  B  is  47.  The  middle  50  per  cent  of  these 
districts  have  from  29  to  55.  The  reason  for  this  is  explained  in  exactly 
the  same  way  as  in  the  previous  table,  namely,  that  the  pupils  involved 
live  at  a  farther  distance  from  the  high  school  and  hence  are  not  as  able 
to  attend. 

In  considering  the  information  shown  in  this  chapter,  it  is  noted  that 
there  are  a  very  large  number  of  high  schools  involved  which  are  small 
high  schools.  For  example,  there  are  298  high  schools  which  have  an  en- 
rollment of  less  than  100.  One  of  the  important  needs  in  this  connec- 
tion is  to  so  distribute  the  districts  of  the  State  that  these  high  schools 
will  be  increased  in  size  so  as  to  increase  their  efficiency. 

It  was  noted  in  particular  that  the  average  attendance  corresponds 
to  enrollment.  It  was  also  noted  that  in  studies  of  this  kind  it  would 
be  better  to  take  the  total  days  attendance  or  the  per  diem  attendance 
as  a  basis  for  calculations.  It  was  also  noted  that  the  length  of  the 
school  term  was  practically  the  same  for  all  sizes  ad  classes  of  schools. 

Various  features  as  .to  the  time  spent  by  the  schools  of  the  North 
Central  Association,  the  schools  of  Illinois,  and  the  township  high  schools 
were  considered  in  separate  tables,  and  it  was  found  that  as  far  as  the 
number  of  weeks  is  concerned,  the  number  of  recitations  in  the  daily 
program  and  the  number  of  60-minute  periods,  the  amount  of  time  spent 
in  these  various  periods  is  practically  the  same  in  the  township  high 
schools  and  in  the  city  high  schools.  There  is  a  smaller  number  of 
tuition  pupils  in  the  township  high  schools  than  in  the  city  high  schools. 
This  is  due  to  the  fact  that  the  township  high  schools  more  completely 
cover  the  territory  naturally  tributary  to  them  than  do  the  city  high 
schools.  The  township  high  schools  have  a  larger  proportion  of  their 
students  in  the  first  year  class  than  the  city  high  schools.  Correspond- 
ingly they  have  a  smaller  number  of  pupils  in  their  upper  classes  and 
among  their  graduates  than  the  city  high  schools.  This  is  due  to  the 
fact  that  pupils  coming  to  these  high  schools  come  from  a  wider  terri- 
tory and  have  not  the  same  convenience  of  transportation.  The  town- 
ship high  schools  have  a  smaller  proportion  of  the  population  under  21 
enrolled  than  city  high  schools."  They  also  have  a  smaller  proportion  of 
the  elementary  enrollment  than  the  city  high  schools.  The  township 
high  school  districts  have  a  smaller  proportion  of  eighth  grade  pupils 


19? 

than  city  high  schools.  All  three  of  these  facts  are  due  to  the  same  cause 
as  was  mentioned  above,  namely,  the  relatively  larger  difficulty  in  trans- 
portation. 


198 


CHAPTER  IX. 


EFFICIENCY  OF  HIGH  SCHOOL  GKADUATES  IX  COLLEGE. 

Up  to  the  present  time  we  have  been  discussing  the  various  factors 
that  go  into  the  education  of  high  school  students.  No  emphasis  has 
heen  placed  upon  the  subject  of  efficiency.  There  is  no  question  but  that 
the  various  factors  heretofore  discussed  have  a  direct  bearing  upon  the 
efficiency  of  high  school  students,  excellence  of  the  appointments  in  the 
building,  provision  for  permanent  equipment,  expenditures  for  currenf 
supplies,  the  training  and  experience  of  executive  officers  and  teachers, 
the  elementary  preparation  of  high  school  students,  and  the  facilities  of 
transportation.  All  of  these  factors  must  necessarily  influence  the  effi- 
ciency of  high  school  students.  However,  it  cannot  be  assumed  that  the 
quantitative  measurement  of  any  of  these  factors  gives  a  final  measure 
of  the  efficiency  of  high  school  education. 

One  of  the  most  important  problems  in  secondary  education  to-day 
is  the  measurement  of  such  items  as  those  mentioned  above.  No  ade- 
quate standards  in  providing  for  these  various  influences  in  secondary 
education  may  be  formulated  until  a  research  into  their  effects  on  the 
student  body  can  be  made. 

In  some  of  the  high  school  courses  of  study  tests  have  been  evolved  • 
and  tentative  standards  set  up.     We  are,  however,  at  the  very  beginning 
of  this  evolution  and  it  is  not  at  present  reliable  enough  to  base  con- 
clusions upon,  and  in  any  case  even  if  these  tests  had  been  available,  no 
opportunity  was  presented  in  the  present  investigation  to  use  them. 

The  real  test  of  a  system  of  education  is  the  permanent  influence 
on  the  lives  of  the  students  that  come  under  its  influence.  This  is  a 
difficult  standard  to  apply.  The  closest  approach  we  have  to  it  so  far  as 
high  school  students  are  concerned  is  their  careers  in  college.  In  a  series 
of  researches  that  have  been  conducted  in  recent  years  it  has  been  found 
that  high  school  students  on  the  whole  perform  in  college  about  as  they 
do  in  high  school  in  the  matter  of  their  efficiency  in  the  college  courses 
as  shown  by  the  college  marks.  For  example,  the  great  majority  of 
students  who  are  in  the  highest  third  of  their  graduating  class  in  high 
school  acquire  and  retain  a  position  in  the  highest  third  in  college.  This 
is  also  true  of  the  first  and  second  thirds  of  the  high  school  graduating 
classes  when  they  go  to  college.  There  are,  of  course,  exceptions  to  this 
in  the  case  of  a  good  student  in  high  school  for  various  reasons  becoming 
a  poor  student  in  college  and  vice  versa,  but  these  are  exceptional  cases. 

In  order  that  we  might  have  the  evidence  which  the  university  might 
afford  in  determining  the  relative  efficiency  of  the  various  groups  of  high 
schools  a  study  was  made  of  the  records  of  freshman  students  in  the 
University  of  Illinois  for  the  years  1911-12,  1912-13,  1913-14  and 


199 

1914-15.  I  am  deeply  indebted  to  Professor  H.  A.  Hollister  of  the 
University  of  Illinois  for  providing  me  with  transcripts  of  these  records, 
which  I  have  tabulated  in  this  chapter. 

Before  going  into  these  marks  in  detail,  however,  I  wish  to  examine 
the  reports  of  "the  number  of  graduates  who  went  from  high  schools  of 
the  various  groups  to  higher  institutions  of  learning.  This  was  pro- 
vided under  Item  61  of  the  Approval  Blank.  The  question  calls  for  the 
number  of  graduates  of  the  high  schools  who  are  at  present  attending 
advanced  institutions  of  learning.  This  information  is  tabulated  in 
Table  LXXIII. 

Of  the  444  institutions  reporting  on  this  section  of  the  Approval 
Blank  only  84  failed  to  report  on  the  item,  so  that  this  information  covers 
the  situation  in  360  high  schools  in  Illinois  and  is  hence  very  complete. 

Beading  the  table  from  left  to  right,  it  will  be  seen  that  of  the  193 
city  high  schools  of  Class  A,  136  of  them  have  from  1  to  9  graduates 
attending  advanced  institutions  of  learning ;  50  of  them  have  from  10  to 
19.  In  the  same  manner  the  table  is  read  throughout.  The  median,  the 
first  quartile  and  the  third  quartile  were  calculated  in  each  case.  An  in- 
spection of  the  table  will  show  that  there  is  no  material  difference  in  the 
number  of  graduates  attending  advanced  institutions  of  learning  in  the 
case  of  township  high  schools  as  compared  with  city  high  schools.  In 
fact,  the 'total  number  of  high  school  students  attending  from  city  high 
schools  and  township  high  schools  is.  exactly  the  same,  that  is,  13.  It 
should  be  noted  in  this  connection  that  these  medians  are  not  actual  but 
are  counted  by  the  group  method.  The  median  number  of  city  high 
.school  graduates  in  Class  A  is  larger  and  there  are  exactly  the  same 
number  in  this  group  for  the  township  high  schools.  Attention  « ion  Id 
be  called  to  the  fact  that  as  the  size  of  the  school  increases  not  only 
does  the  number  of  graduates  increase  but  this  number  increases  rela- 
tively to  the  size  of  the  school.  That  is,  for  example.  Class  D  sends 
more  than  four  times  the  number  of  graduates  to  advanced  institutions 
of  learning  than  Class  A  does.  The  remarkable  feature  about  this 
table  is  its  regularity,  that  is,  schools  of  a  given  size  can  be  expected  to 
send  about  so  many  graduates  to  advanced  institutions  of  learning. 

Eeturning  again  to  the  transcripts  of  freshmen  records  furnished 
from  the  University  of  Illinois,  attention  is  called  to  the  fact  that  in  the 
present  investigation  there  are  2,354  of  these  records  studied,  covering 
20,749  courses  in  the  University.  With  so  large  a  number  of  students 
and  courses  covering  a  period  of  four  years  it  ought  to  be  possible  to 
reach  rather  definite  conclusions. 

Upon  examination  of  these  transcripts  it  was  found  that  a  few  were 
from  high  schools  that  could  not  be  identified  in  the  State.  These  were 
excluded  from  the  study.  The  number  mentioned  above  consists  of 
those  actually  included  in  the  study.  Still  further,  in  some  of  the  records 
which  were  included  in  this  study  there  were  certain  symbols  used  in 
the  place  of  grades,  and  since  it  was  not  possible  to  compile  them  and  in- 
dicate them  in  the  tabulations  it  was  decided  to  include  them  in  a  sep- 
arate tabulation  so  that  we  might  have  definite  information  covering  the 
subject  entirely.  The  symbols  used  were  as  follows:  Inc,  WP,  AB, 


200 


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EX,  D.  Tn  a  letter  dated  April  27,  1916,  Professor  Hollister  very  kindly 
interpreted  these  symbols  as  follows : 

WP — is  merely  an  abbreviation  used  in  the  Registrar's  office  and 
means  that  the  student  has  withdrawn  from  the  subject  with  permission. 

Inc — Incomplete,  probably  requiring  the  submission  of  notebooks  or 
of  some  other  collateral  work  required. 

AB — Absent.     Meaning  that  the  final  examination  was  not  taken. 

EX — Excused,  which  means  about  the  same  thing. 

D — means  dropped,  which  would  mean  that  the  student  was  dropped 
from  the  course  from  some  irregularity  or  inefficiency. 

The  use  of  these  symbols  was  tabulated  in  Table  LXXIY  after  the 
manner  followed  throughout  this  study. 

In  the  horizontal  column  marked  "Number  of  Schools"  the  whole 
number  of  schools  comprising  this  investigation  are  shown.  In  the 
horizontal  column  immediately  below  it  the  percentages  of  these  schools 
are  shown,  that  is,  the  percentage  of  Class  A  which  are  township  high 
schools  and  the  percentage  which  are  city  high  schools.  This  is  found 
by  adding  the  number  of  township  high  schools  and  the  number  of  city 
high  schools  together  and  finding  the  percentage  each  group  is  of  the 
total.  Similarly  in  the  column  marked  "Total  Symbols"  the  same  pro- 
cedure is  followed.  For  example,  the  total  symbols  for  the  city  high 
schools  of  Class  A  are  added  to  the  total  symbols  for  the  township  high 
schools  of  Class  A  and  the  percentage  which  each  group  is  of  the  total  is 
calculated  and  set  down  in  the  appropriate  column.  Tlie  purpose  of  this 
calculation  is  to  determine  the  relation  of  the  ratio  of  the  symbols  to  the 
ratio  of  the  schools.  An  examination  of  the  two  columns  shows  very 
definitely  that  the  percentage  of  irregularities  is  fairly  equivalent  with 
that  of  the  schools,  except  in  the  cases  of  Class  C  and  Class  D,  in  which 
the  ratios  do  not  at  all  coincide.  On  the  basis  of  these  facts  we  are 
justified  in  passing  over  the  matter  of  irregularities  and  neglecting  them 
in  a  consideration  of  the  later  tabulations.  This  is  because,  as  stated 
above,  there  is  fairly  even  calculation  between  the  number  of  irregulari- 
ties and  the  number  of  schools  in  each  group. 

The  first  form  in  which  these  transcribed  records  are  tabulated  is 
shown  in  Tables  LXXV  to  LXXIX  inclusive.  Table  LXXV.  exhibits 
the  records  for  the  year  1911-12,  LXXVI  for  1912-13,  LXXVII  for 
1913-14  and  LXXVIII  for  1914-15.  All  the  information  included  in 
Tables  LXXV  to  LXXVIII  inclusive  is  recapitulated  in  Table  LXXIX, 
that  is,  Table  LXXIX  comprises  the  records  of  all  the  2,354  students 
and  the  20,749  courses  which  they  took. 

Table  LXXIX  is  constructed  so  far  as  the  distribution  of  the  schools 
is  concerned  in  exactly  the  same  way  as  the  preceding  ones.  The  first 
horizontal  column  shows  the  number  of  schools  involved.  Now  it  will 
be  seen  that  there  is  quite  a  discrepancy  between  the  number  of  schools 
shown  here  and  the  number  shown  in  any  one  of  the  individual  years 
given  in  the  preceding  table.  For  example,  there  are  298  city  high 
schools  of  Class  A  shown  in  this  table,  whereas  there  are  only  72  city 
high  schools  of  Class  A  shown  in  Table  LXXV.  This  is  due  to  the  fact 
that  in  Table  LXXIX  the  high  schools  are  repeated,  that  is,  in  this 
column  under  discussion  if  a  school  had  freshmen  in  each  of  the  four 


202 


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Whole  number  taking  courses 
Number  failing  in  one  or  more  cou 
Per  cent  of  students  failing  in  one 
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Whole  number  of  courses  taken 
Whole  number  of  courses  failed 
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years  under  discussion  it  would  be  reported  in  this  column  as  four  high 
schools,  whereas  it  would  be  reported  as  one  high  school  in  each  of  the 
preceding  tables. 

The  second  horizontal  column  represents  the  whole  number  of 
students  taking  courses  in  the  University  under  the  various  groups  and 
classes.  The  horizontal  column  immediately  below  it  is  the  number 
failing  in  one  or  more  courses.  The  fourth  horizontal  column  reading 
down  is  the  percentage  of  students  failing  in  one  or  more  courses.  This 
is  the  percentage  of  the  third  column  based  upon  the  second  column.  For 
example,  in  the  city  high  schools  of  Class  A  there  are  527  taking  courses 
in  the  University.  Of  these  215  failed,  that  is,  215  is  40.79  per  cent 
of  527.  Heading  this  column  we  note  that  40.79  per  cent  of  graduates 
of  city  high  schools  of  Class  A  failed  in  the  freshman  year  during  these 
four  years.  In  the  township  high  schools  36.36  per  cent  failed  during 
this  period  of  four  years,  and  so  on  throughout  the  table. 


Per 

Cent 


40.97 


Fig.  26. — High  School  graduates  failing  in  one  or  more  courses  at  the  Uni- 
versity of  Illinois.  In  the  first  vertical  column  the  high  schools  are  classified 
according  to  enrollment.  In  the  second  vertical  column  is  shown  the  percentage 
of  high  school  graduates  from  each  group  of  schools  failing  in  one  or  more  courses 
in  the  freshman  class  in  the  University  based  on  the  total  number  of  graduates 
in  the  University  from  that  group  of  schools.  The  horizontal  bars  represent  these 
percentages.  The  hollow  bars  represent  the  percentages  of  graduates  from  the 
city  high  schools  and  the  solid  bars  the  percentages  of  graduates  from  the  town- 
ship high  schools. 

There  is  a  column  here  marked  for  the  whole  number  of  courses 
taken.  For  example,  graduates  from  city  high  schools  of  Class  A  took 
4,645  courses;  similarly,  graduates  from  the  township  high  schools  of 
Class  A  took  545  courses.  Another  column  follows  in  which  the  number 
of  courses  failed  and  the  percentage  calculated  of  the  number  of  courses 
failed  based  on  the  whole  number  of  courses  taken  are  shown.  The  per- 
centage of  courses  failed  is  the  last  column  in  the  table.  Eeading  this 
last  column  in  the  table  we  note  that  8.56  per  cent  of  the  courses  taken 
by  city  high  school  graduates  in  Class  A  were  failed.  Similarly,  8.81 
per  cent  of  the  courses  taken  by  graduates  of  township  high  schools  of 
Class  A  were  failed,  and  so  on  throughout  the  table. 

This  information  is  shown  graphically  in  Figure  26.  Figure  26 
pertains  to  the  column  marked  "Per  Cent  of  Students  Failing  in  1  or 
More  Courses."  The  first  column  shows  the  size  of  the  school,  the  second 


206 

shows  the  percentage  of  students  failing  in  one  or  more  courses.  This 
percentage  is  represented  graphically  at  the  right  by  hollow  bars  for  the 
city  high  schools  and  solid  bars  for  the  township  high  schools. 

Note  that  in  Class  A  40.79  per  cent  of  the  graduates  from  city  high 
schools  failed  in  one  or  more  courses,  and  this  is  represented  by  the  hol- 
low, bar  adjacent  to  it.  Similarly,  36.36  per  cent  of  the  graduates  of 
township  high  schools  taking  courses  in  the  University  failed,  and  this 
percentage  is  represented  by  the  solid  bar  adjacent  to  it. 

By  studying  the  horizontal  columns  of  figures  marked  "Per  Cent  of 
Students  Failing  in  One  or  More  Courses"  and  examining  the  graph  at 
the  same  time  certain  conclusions  are  outstanding. 

The  percentage  of  students  failing  in  one  or  more  courses  in  the 
University  is  distinctly  larger  in  the  case  of  city  high  schools  than  in  the 
case  of  the  township  high  schools  in  every  class  except  Class  E.  Disre- 
garding the  class  divisions  and  taking  the  students  in  the  aggregate,  it  is 
also  to  be  noted  that  the  percentage  of  students  who  fail  is  larger  in  the 
case  of  city  high  schools  as  compared  to  township  high  schools.  The 
ratio  is  the  percentage  of-  38.1  per  cent  as  compared  to  34.53  per  cent. 

A  third  conclusion  to  be  drawn  from  this  table  and  graph  is  that  the 
students  from  the  smaller  schools  fail  in  larger  numbers  than  those  from 
the  larger  ones,  although  this  difference  is  not  as  marked  as  one  might 
expect. 

A  fourth  fact  is  that  there  is  a  smaller  percentage  of  students  failing 
in  township  high  schools  which  have  underlying  them  a  well  graded  sys- 
tem of  elementary  schools.  In  a  preceding  chapter  it  was  found  that  the 
enrollment  in  township  high  schools  of  Classes  A  and  B  was  largely  made 
up  of  pupils  coming  from  one-room  country  schools,  and  village  schools 
of  from  2  to  5  teachers.  In  township  high  schools  of  200  enrollment  and 
over  or  in  Classes  C  and  D  the  predominating  part  of  the  enrollment 
comes  from  well  graded  elementary  schools.  In  drawing  comparative 
conclusions  here  it  is  well  to  disregard  Classes  E  and  F  since  the  num- 
ber of  township  high  schools  shown  is  so  small.  It  is  clear  then  that 
the  township  high  schools  surpass  the  city  high  schools  as  regards  the 
percentage  of  students  failing  in  one  or  more  subjects  when  they  have 
underlying  them  well  graded  elementary  school  systems  as  in  Classes 
C  and'D. 

The  horizontal  column  marked  "Per  Cent  of  Courses  Failed"  is  rep- 
resented graphically  in  Figure  27.  This  graph  is  constructed  in  exactly 
the  same  manner  as  the  preceding  one.  It  will  be  noted  that  here  again 
the  percentage  of  courses  failed  is  greater  in  the  case  of  the  small  high 
schools  than  in  the  large  ones. 

Here  again  it  is  well  to  disregard  classes  E  and  F  because  the  num- 
ber of  township  high  schools  involved  is  so  small  as  to  be  inconclusive 
as  regards  a  comparison  of  township  high  schools  and  city  hi^h  schools. 
In  the  percentage  of  courses  failed  it  is  evident  again  that  the  township 
high  schools  which  have  a  great  majority  of  their  students  coming  from 
well  graded  elementary  schools  "show  greater  efficiency  than  the  city  high 
schools  of  the  same  approximate  size.  In  the  smaller  high  schools  as 


207 


in  Classes  A  and  B  the  city  high  schools  surpass  the  township  high 
schools.  This  can  be  accounted  for  in  a  similar  way  in  that  the  city  high 
schools  have  a  smaller  proportion  of  their  students  coming  from  rural 
and  other  relatively  ungraded  schools. 

In  the  aggregate  the  percentage  of  courses  failed  is  slightly  greater 
in  the  case  of  the  township  high  schools  than  in  the  case  of  the  city 
high  schools.  This  difference  however  is  a  very  slight  percentage — 15 
hundredths  of  one  per  cent. 

It  is,  however,  hardly  proper  to  base  all  conclusions  relative  to  effi- 
ciency in  scholarship  upon  the  number  and  percentage  of  students  fail- 
ing and  the  -number  and  percentage  of  courses  failed.  This  is  a  com- 
mon method  of  investigation  which  needs  to  be  reinforced  and  amplified, 
however,  by  a  study  of  the  situation  as  regards  students  who  are  suc- 
cessful. Information  reflecting  this  latter  aspect  of  the  situation  is 
tabulated  from  these  transcripts  of  freshman  records  in  Tables  LXXX  to 
LXXXIV  inclusive. 


Fig.  27. — Courses  failed  by  high  school  grad- 
uates in  the  freshman  class  of  the  University  of 
Illinois.  The  high  schools  are  classified  in  the 
first  vertical  column  according  to  the  number 
enrolled.  In  the  second  vertical  column  is 
shown  the  percentage  of  courses  failed  by  grad- 
uates from  each  group  of  schools  based  on  the 
entire  number  of  courses  taken  by  graduates 
from  that  group  of  schools.  These  percentages 
are  represented  by  the  horizontal  bars.  The 
hollow  bars  represent  the  percentages  in  the 
case  of  the  city  high  schools  and  the  solid  bars 
represent  the  percentages  in  the  township  high 
schools. 


Table  LXXX  comprises  information  for  the  year  1911-12,  LXXXI 
for  the  year  1912-13,  LXXXII  for  the  year  1913-14,  LXXXIII  for  the 
year  1914-15.  The  aggregate  of  all  these  records  for  the  four  years  is 
tabulated  in  Table  LXXIV.  All  of  these  tables  are  constructed  in  the 
same  manner.  To  compile  these  tables  the  record  of  each  student  was 
averaged,  and  Table  LXXXIV  is  a  summary  of  these  averages. 

In  Table  LXXIV  the  number  of  averages  below  70  for  each  group  is 
set  in  the  horizontal  column  opposite  the  designation  "Below  70."  The 
number  of  averages  in  each  group  from  70  to  74.99  is  set  over  in  the 
horizontal  column  following  these  figures,  and  so  on  throughout  the 
table.  In  the  vertical  column  next  to  the  number  of  cases  in  each  group 
is  shown  the  percentage  that  this  number  bears  to  the  total  number  of 
cases  in  this  group. 

There  are  529  graduates  from  city  high  schools  of  Class  A;  41  grad- 
uates or  7.75  per  cent  of  this  number  received  a  grade  of  below  70.  Of 
the  total  number  14.93  per  cent  or  79  of  them  received  a  grade  of  from 
70  to  74.99.  By  a  study  of  the  various  columns  in  this  respect  it  is 


208 


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easy  to  find  out  the  practice  of  the  University  in  its  treatment  of  schools 
of  the  various  sizes  and  kinds  as  to  its  distribution  of  grades. 

There  is  a  horizontal  column  for  the  total  number  of  students  from 
each  group.  And  just  to  the  right  of  the  number  in  each  case  is  the 
percentage  that  that  group  bears  to  the  total  number  of  students  in  this 
study,  namely,  2,359.  In  .the  lower  part  of  the  table  are  horizontal  col- 
umns for  the  median,  the  first  quartile,  the  third  quartile  and  the  quar- 
tile  deviation. 

The  information  shown  in  the  horizontal  column  for  medians  is 
shown  graphically  in  Figure  28.  This  graph  has  a  column  at  the  left 
for  size  of  the  group  of  schools  under  consideration.  The  second  column 
is  for  the  median  average  grade  in  each  group.  The  median  for  the  city 
high  schools  is  represented  graphically  at  the  right  by  the  hollow  bar. 
The  median  average  grade  for  the  township  high  schools  in  each  group 
is  represented  by  the  solid  bar. 


Sizeof    Pei- 
SChool    Cent 


Fig.  28.— Median  average  scholarship  of  high  school  graduates  in  the  freshman 
class  of  the  University  of  Illinois.  The  high  schools  are  classified  in  the  first 
vertical  column  according  to  the  number  enrolled.  In  the  second  vertical  column 
is  shown  the  median  average  grade  made  by  high  school  graduates  from  each 
group  of  schools.  With  100  per  cent  as  the  base  the  horizontal  bars  were  con- 
structed to  represent  these  median  average  grades.  The  hollow  bars  apply  to  city 
high  schools  and  the  solid  bars  to  the  township  high  schools. 

In  the  inspection  of  the  horizontal  column  of  medians  it  is  again 
advisable  to  omit  Classes  E  and  F  for  the  same  reasons  as  heretofore. 
Omitting  these  the  median  average  grade  in  the  township  high  schools 
is  higher  in  every  case  than  in  the  city  high  schools.  In  this  connection 
it  is  well  to  call  attention  to  the  large  difference  which  a  variation  of 
one  per  cent  in  the  median  average  grade  represents.  Between  28  and  29 
per  cent  of  the  freshmen  in  the  University  average  between  80  and  85 
per  cent  in  scholarship.  Hence  a  difference  of  one  per  cent  in  the  median 
average  is  a  large  one. 

The  first  horizontal  column  in  Table  LXXXIV,  namely  that  marked 
"Below  70,"  is  represented  graphically  in  Figure. 29.  This  figure  is  con- 
structed exactly  like  the  preceding  one.  The  first  column  is  for  the  size 
of  school,  the  second  for  the  percentage ;  and  the  percentage  for  the  city 
high  schools  is  represented  by  the  hollow  bar,  the  percentage  for  the 
township  high  schools  by  the  solid  bar. 

An  interpretation  of  this  ^ column  and  this  graph  brings  out  very 
definitely  that  in  the  smaller  schools,  that  is  in  Class  A,  B  and  C,  the 


219 


township  high  schools  have  a  markedly  higher  percentage  of  students 
below  70 ;  and  in  the  larger  schools,  that  is  in  Class  D,  E  and  E,  they  have 
a  markedly  smaller  percentage  of  students  below  70,  In  other  words,  the 
larger  township  high  schools  have  a  distinct  advantage  in  scholarship  in 
the  University  over  the  smaller  township  high  schools  and  over  the  city 
high  schools  of  all  classes.  The  natural  inference  from  this  is  that  the 
township  high  school.,  if  it  has  the  advantage  of  underlying  districts 
which  are  highly  graded,  has  the  better  opportunity  for  sending  high 
grade  students  to  the  University. 

In  the  vertical  column  marked  "Total/7  which  shows  the  total  per- 
centage for  city  high  schools  and  for  township  high  schools,  we  have  a 
table  of  the  practice  of  the  University  as  it  treats  township  high  schools 
and  city  high  schools  as  a  whole.  This  column  is  represented  graphic- 
ally in  Figure  30.  This  graph  is  constructed  exactly  the  same  as  the 
preceding  ones.  It  will  be  noted  that  in  the  case  of  city  high  schools  of 
Class  A  7.16  per  cent  of  the  students  get  below  70,  and  in  the  case  of 


Fig.  29.  —  High  school 
graduates  in  the  freshman 
class  of  the  University  of 
Illinois  whose  average  in 
scholarship  is  "below  70."  In 
the  first  vertical  column  the 
high  schools  are  classified 
according  to  enrollment.  In 
the  second  column  is  shown 
the  percentage  of  graduates 
from  each  group  of  schools 
whose  average  in  scholar- 
ship is  below  70  based  on 
the  entire  number  of  grad- 
uates coming  from  the 
group  of  schools  in  question. 
These  percentages  are  rep- 
resented by  the  horizontal 
bars.  The  hollow  bars  rep- 
resent the  percentages  in 
the  case  of  city  high  schools 
and  the  solid  bars  in  the 
case  of  the  township  high 
schools. 


township  high  schools  of  this  class  8.67  per  cent  get  below  70.  Similarly 
both  the  table  and  the  graph  are  to  be  read  down  the  column.  It  is  to 
be  noted  on  the  one  hand  that  the  township  high  schools  show  the  largest 
percentage  of  pupils  below  70.  They  also  show  the  largest  percentage  of 
pupils  getting  between  85  and  90,  also  between  90  and  100.  The  city 
high  schools  have  the  largest  percentage  between  75  and  80,  and  slightly 
more  than  the  township  high  schools  between  80  and  85.  In  other  words, 
the  township  high  schools  have  the  largest  percentage  of  pupils  who  have 
an  average  below  70,  and  also  a  larger  percentage  of  pupils  getting 
above  85. 

A  study  of  this  distribution  brings  out  the  fact  that  the  University 
in  its  treatment  of  freshmen'  in  the  matter  of  grades  follows  the  prob- 
ability curve  rather  closely,  with  the  possible  exception  to  be  noted  that 
the  university  instructors  use  the  grades  from  95  to  100  very  sparingly. 
Sometimes  harsh  criticism  is  levelled  at  a  high  school  or  a  university  be- 
cause of  the  large  number  of  failures.  The  table  of  the  practice  of  the 


220 

University  will  not  bear  out  this  criticism.  When  only  about  7%  Per 
cent  of  the  students  have  an  average  grade  below  70  no  serious  criticism 
is  justified,  when  general  standards  of  current  scholarship  are  taken  into 
consideration. 

In  this  connection  also  it  should  be  noted  that  37.36  per  cent  of  the 
students  failed  in  one  or  more  courses.  A  comparison  of  this  figure  with 
the  practice  in  most  high  schools  will  reveal  the  fact  that  the  practice  of 
the  University  corresponds  almost  identically  with  the  practice  in  the 
lower  schools.  Most  high  schools  fail  about  32  to  37  per  cent  of  their 
students  in  one  or  more  courses.  This  is  only  another  fact  bearing  upon 
the  general  proposition  that  the  scholastic  situation  as  shown  by  the 
high  schools  and  the  universities  to  which  they  contribute  is  a  different 
aspect  of  the  same  problem.  The  universities  and  high  schools  meet  this 


Below 
70 


70- 
74.99 


Pcr 
C«nt 


12.97 
11.62 


Z5.Z6\ 


80- 


£9.19 
L8-3! 


85- 
89.99 


19.03 
23.891 


90- 


6.14 


95T- 
IOO 


0.2J 
0.0 


Fig-.  30. — Distribution  of  average  grades  made  by  high  school  graduates  in  the 
freshman  class  of  the  University  of  Illinois.  In  the  first  vertical  column  the 
average  grades  are  grouped.  In  the  second  column  the  percentage  of  graduates 
from  township  high  schools  securing  an  average  within  a  certain  group  is  set  oppo- 
site that  group.  This  percentage  is  based  on  the  entire  number  of  graduates 
coming  from  township  high  schools.  Percentages  in  the  case  of  city  high  schools 
are  treated  in  a  similar  manner.  The  hollow  bars  represent  these  percentages  in 
the  case  of  the  city  high  schools  and  the  solid  bars  in  the  case  of  the  township 
high  school. 

scholastic  problem  in  practically  the  same  manner  so  far  as  the  marks 
are  concerned. 

The  general  facts  which  may  be  drawn  from  the  investigation  con- 
ducted in  this  chapter  are  as  follows.  A  larger  percentage  of  graduates 
of  city  high  schools  fail  in  one  or  more  courses  than'  graduates  of  town- 
ship high  schools. 

The  graduates  of  township  high  schools  which  have  well  graded  ele- 
mentary schools  contributing  to  them  show  a  smaller  percentage  of 
courses  failed  than  city  high  schools  of  approximately  the  same  size  which 
are  probably  equally  well  equipped  as  to  elementary  schools.  A  larger 
percentage  of  the  pupils  from  the  smaller  high  schools  fail  than  those 
from  the  larger  high  schools.  The  advantage  of  the  larger  schools  seems 


221 

to  begin  here  with  Class  B.  Similarly  in  the  percentage  of  courses 
failed  the  advantage  is  with  the  larger  schools.  Here  again  the  ad- 
vantage starts  with  Class  B.  The  median  average  grade  is  higher  in 
the  case  of  the  township  high  schools  as  compared  to  the  city  high  schools. 
As  regards  the  number  of  pupils  who  have  averages  below  70,  the  town- 
ship high  schools  furnish  the  largest  percentage  of  these  in  Classes  A,  B 
and  C,  again  emphasizing  their  lack  of  well  graded  underlying  ele- 
mentary schools.  They  furnish  decidedly  the  smaller  percentage  of 
pupils  who  have  averages  below  70  in  the  case  of  the  larger  schools,  that 
is,  Classes  D,  E  and  F.  The  township  high  schools  in  the  aggregate  fur- 
nish the  largest  percentage  of  students  averaging  below  70 ;  they  also 
furnish  the  largest  percentage  of  students  averaging  above  85  per  cent. 
It  is  clear  that  on  the  whole  the  township  high  schools  have  a  higher 
standing  in  scholarship  in  the  University  of  Illinois  than  the  city  high 
schools.  They  are  markedly  superior  in  those  township  high  schools 
which  have  underlying  city  districts  with  well  graded  schools.  The  ob- 
vious conclusion  to  be  drawn  from  this  is  that  a  high  school  with  superior 
material  and  financial  advantages,  such  as  the  township  high  schools 
have,  will  furnish  better  students  to  the  University  in  case  the  underlying 
districts  are  well  graded.  An  examination  of  the  horizontal  column  for 
quartile  deviation  shows  here  as  elsewhere  in  this  investigation  that  the 
township  high  schools  involved  have  a  larger  deviation  than  city  high 
schools,  thus  showing  a  greater  tendency  toward  variance  in  practice. 


222 


CHAPTER  X. 


THE  UNDERLYING  TERRITORIAL  UNIT. 

The  foundation  of  any  system  of  schools  is  the  territory  which  it- 
covers.  The  limits  of  a  district  determine  the  basis  of  taxation  and  out- 
line the  foundation  of  its  financial  support.  The  geographical  boun- 
daries of  a  district  have  a  very  definite  influence  on  the  progress  of  the 
school.  It  is  in  the  last  analysis  probably  the  most  important  feature. 
At  any  rate,  the  territorial  unit  joined  with  the  social  conditions  environ- 
ing the  high  school  is  the  primary  determining  factor. 

In  order  to  systematize  the  information  upon  this  point  a  report 
on  the  township  high  schools  which  was  turned  in  to  the  State  Superin- 
tendent's office  in  May,  1916,  was  collated  in  Table  LXXXV. 

The  table  pertains  entirely  to  township  high  schools.  There  is  no 
information  available  on  city  districts.  The  information  pertains  to  110 
township  high  school  districts.  The  number  of  districts  that  have  from 
1  to  5  square  miles  is  shown  in  the  appropriate  group,  the  number  from 
6  to  10,  and  so  forth.  Then  beginning  to  read  the  first  horizontal  col- 
umn at  the,  top  we  notice  that  there  is  one  high  school  in  Class  A  that 
has  1  to  5  square  miles  of  territory,  and  one  that  has  from  6  to  10.  It 
will  be  noted  that  of  the  4  high  schools  set  down  in  Class  E  two  of  them 
have  only  from  6  to  10  square  miles  of  territory.  It  is  very  clear  that 
these  two  township  high  schools  are  merely  city  districts  operating  under 
the  township  high  school  law.  It  will  be  noted  that  there  are  2  township 
high  schools  that  have  from  76  to  100  square  miles  of  territory,  and  2 
have  over  100  square  miles.  In  other  words,  they  have  more  than  three 
regular  townships  in  their  territory. 

An  inspection  of  the  latter  part  of  the  table  shows  that  there  is  no 
material  difference  between  the  various  classes  as  to  the  amount  of  terri- 
tory which  they  cover.  The  small  high  schools  have  on  the  whole  about 
as  much  territory  as  the  larger  ones.  The  school  township,  or  36  square 
miles,  is  the  typical  size.  There  are  over  50  per  cent  of  the  township 
high  schools  covering  the  amount  of  territory  included  in  a  school  town- 
ship. 

The  conformation  of  the  underlying  territory  is  quite  as  important 
as  the  amount  of  territory  involved.  If  a  district  is  long  and  narrow 
but  if  it'has  a  good  transportation  system  such  as  an  electric  line  or  a 
railroad  with  adequate  train  service,  all  of  its  inhabitants  may  be  more 
convenient  to  the  township  high  school  than  in  a  territory  that  is  more 
nearly  square.  A  high  school*  may  be  situated  in  the  township  in  such 
a  way  that  although  the  district  is  relatively  small  the  high  school  may 
be  difficult  of  access. 


223 


•QOI  JOAO 


OOI-9Z 


09-9^ 


Of-98 


OS-92 


02-91 


9T-IT 


01-9 


S-T 


In  order  to  learn  the  situation  in  this  matter  as  regards  the  present 
laws  reference  is  made  to  Chapter  2,  in  which  the  legal  constitution  of 
the  township  high  school  is  discussed.  On  page  7  eight  different  kinds 
of  high  school  districts  are  shown  to  exist  under  the  general  law  printed 
as  appendix  B  as  follows  : 

1.  A  school  township. 

2.  Two  or  more  adjoining  townships. 

3.  Two  or  more  adjoining  school  districts. 

4.  Parts  of  adjoining  townships. 

5.  The  remainder  of  a  township  part  of  which  has  been  organized 
into  a  township  high  school. 

6.  A  school  district  having  a  population  of  2,000  or  more. 

7.  A  city  and  a  township. 

8.  Part  of  a  school  township  divided  by  a  navigable  stream. 

As  noted  in  Chapter  2,  the  general  law  was  first  passed  in  1872  and 
was  .based  on  the  Princeton  Special  Charter  of  1867.  From  time  to  time 
this  general  law  was  modified  to  fit  this  or  that  local  need  as  necessities 
arose.  For  example,  it  was  decided  to  organize  Centralia  Township  High 
School.  But  part  of  the  city  of  Centralia  lies  outside  of  Centralia  Town- 
ship. The  Legislature  responded  to  the  local  demand  by  amending  the 
law  so  that  a  township  high  school  district  might  be  organized  so  as  to 
include  a  city  and  township,  the  7th  of  the  kinds  of  township  high  school 
districts  enumerated  above.  Most  of  the  several  kinds  thus  enumerated, 
aside  from  the  first  mentioned,  originated  in  a  similar  manner. 

It  will  clarify  the  discussion  to  examine  these  various  kinds  in  detail. 
To  that  end  a  figure  is  shown  illustrating  each  kind  of  district.  These 
figures  are  not  all  drawn  to  the  same  scale  but  the  size  of  the  districts  is 
indicated  by  the  'sections  which  are  numbered. 

The  Joliet  Township  High  School  district  is  selected  as  the  example 
of  the  first  kind  of  township  high  school  district  under  the  general  law, 
in  that  it  includes  a  school  township.  That  a  school  township  should 
constitute  a  township  high  school  district  was  the  original  provision  of 
the  law.  The  Joliet  district  is  shown  in  Figure  31.  Note  that  the  lines 
of  transportation  all  converge  into  the  city  of  Joliet.  The  city  of  Joliet 
is  the  natural  school  center  for  this  township.  Cities  like  this  could  well 
be  the  centers  for  school  districts  of  even  larger  area  than  a  school  town- 
ship. The  Joliet  high  school  is  the  largest  township  high  school,  in  fact, 
it  is  the  largest  high  school  of  any  kind  in  the  State  outside  of  Chicago. 
It  is  an  excellent  example  of  the  manner  in  which  a  city  and  its  tributary 
rural  territory  may  be  combined  to  advantage  into  a  single  school  district. 

The  Tiskilwa  High  School  is  the  only  example  of  the  second  kind 
of  district,  namely,  "two  or  more  adjoining  townships."  This  district 
is  represented  in  Figure  32.  Note  that  the  town  in  which  the  high 
school  is  located  is  almost  in  the  center  of  the  district  and  that  the  roads 
and  the  railroad  make  Tiskilwa  the  center  of  the  district. 

NOTE.— Transcriptions  for  the  cuts  for  these  figures  were  made  by  Mr.  Sigel  R.  Bumann  of 
Thornton  Township  High  School  from  the  County  Survey  Maps  published  by  Rand,  McXally  &  Co. 


225 

The  third  kind  of  township  high  school  district  is  that  in  which  two 
or  more  adjoining  school  districts  may  be  organized  into  a  township  high 
school  district.  The  J.  Sterling  Morton  High  School  at  Cicero,  111.,  is 
an  example  of  this  class.  An  outline  of  the  district  is  shown  in  Figure 
33.  Note  that  this  high  school  district  is  somewhat  smaller  than  the 
others.  It  is  a  compact  suburban  district  near  Chicago.  Because  of  the 
relatively  small  size  and  the  excellence  of  transportation  facilities,  the 


•JOLIET 


Figure  31. 

school  is  easily  accessible  to  all  parts  of  the  district.  By  the  use  of  this 
section  of  the  law  many  communities  in  the  State  could  organize  high 
school  districts  which  would  meet  their  needs,  since  the  proper  selection 
of  school  districts  would  in  many  cases  allow  the  formation  of  a  high 
school  district  of  the  desirable  size  and  shape. 

According  to  the  fourth  provision,  "parts  of  adjoining  townships" 
may  be  organized  into  a  township  high  school.     The  Oak  Park  and  River 
Forest  Township  High  School  is  a  good  example  of  this,  and  an  outline 
—15  I  H  S 


226 


of  the  district  is  shown  in  Figure  34.  Part  of  the  district,  that  of  which 
River  Forest  is  the  center,  is  in  Proviso  Township;  that  of  which  Oak 
Park  is  the  center  is  in  Cicero  Township.  This  is  a  compact  and  populous 


district  in  Cook  County  immediately  adjacent  to  the  city  of  Chicago. 
It  has  excellent  transportation  facilities.     It  is  one  of  the  largest  town- 


227 

ship  high  schools  in  the  State.  The  provision  of  the  law  also  allows  con- 
siderable elasticity  in  the  formation  of  high  school  districts  in  that  town- 
ship boundary  lines  do  not  restrict  the  size  or  shape  of  the  district.  In 
fact,  by  the  judicious  use  of  provisions  three  and  four  most  of  the  terri- 


/=?.      A/0 


J.  S  TEF?L  IIV  G     1V10FP  T  OJV 

U.S. 


Figure  33. 

tory  of  the  State  could  be  organized  into  high  school  districts  in  a  de- 
sirable manner. 

In  provision  five  "the  remainder  of  a  township  part  of  which  has 
been  organized  into  a  township  high  school/'  the  Proviso  Township 
High  School  located  at  Maywood  in  Cook  County  is  an  example.  A  part 


228 


of  Proviso  Township  had  been  included  in  other  township  high  school 
districts,  e.  g.,  a  part  had  been  included  in  the  Oak  Park  and  Eiver  Forest 
district.  Under  this  provision  of  the  law  the  remainder  of  the  township 
was  organized  into  another  high  school  district.  This  district  is  shown 
in  Figure  35.  Note  that  the  transportation  facilities  are  good.  This 
provision  is  a  special  one,  and  the  example  given  is  the  only  one.  The 
provision  could  not  have  very  wide  application  throughout  the  State. 

The  sixth  provision  is  that  a  school  district  having  a  population  of 
2,000  or  more  may  be  organized  into  a  township  high  school  district. 


Ox 
•*> 

6 


OAK 


RIVER  FOREST 


s. 


Figure  34. 

The  Blue  Island  High  School  is  an  example  of  this.  It  is  in  Cook 
County  near  Chicago.  An  outline  of  the  district  is  shown  in  Figure  36. 
In  this  case  the  high  school  district  and  the  elementary  school  district 
are  coterminous.  The  point  in  the  organization  of  such  a  district  is 
that  the  district  which  had  been  maintaining  a  high  school  found  itself 
short  of  funds.  By  superimposing  a  high  school  district  upon  the  old 
school  district  the  power  of  taxation  for  school  purposes  was  doubled. 
It  makes  necessary,  however,  two  boards  of  education  in  the  identical  ter- 
ritory where  there  had  been  but  one.  The  same  superintendent  is 


229 

selected  by  the  two  boards  to  have  charge  of  both  the  elementary  school 
and  the  high  school. 

The  seventh  provision  is  that  a  "city  and  a  township"  may  be  organ- 
ized into  a  township  high  school  district.  This  is  a  very  special  provi- 
sion made  to  fit  a  particular  situation.  The  city  of  Centralia  lies  partly 
in  Centralia  Township  in  Marion  County  and  partly  in  another  county. 
It  was  desirable  to  include  the  whole  of  the  city  of  Centralia  in  the  new 
township  high  school  district  which  was  to  be  created  in  Centralia  Town- 
ship. Hence  an  amendment  to  the  law  was  secured  providing  that  a 


A/0-     /<? 


PROVISO 

Figure  35. 

city  and  a  township  may  organize  a  township  high  school.  This  district 
is  shown  in  Figure  37.  Because  an  accurate  map  was  not  available  that 
part  of  the  city  of  Centralia  which  lies  outside  of  Centralia  Township  is 
not  shown  in  its  accurate  form.  The  remainder  of  the  map  is  authentic. 
Note  that  the  lines  of  transportation  lead  naturally  to  the  city  of 
Centralia  although  the  city  is  located  on  the  western  boundary  of  the 
district.  This  is  a  very  special  provision  and  would  not  often  find  appli- 
cation in  other  parts  of  the  State.  The  fact  that  the  school  is  located  at 


230 

one  side  of  the  district  in  this  district  leads  to  the  general  comment  that 
the  school  should  always  be  located  with  reference  to  density  of  popula- 
tion and  accessibility  as  regards  transportation  rather  than  with  refer- 
ence to  the  geographical  center.  In  fact,  geographical  distance  in  itself 
should  have  very  little  influence  in  locating  the  building  but  should  give 
way  entirely  to  considerations  of  the  density  and  accessibility  of  popu- 
lation. 

Another  special  provision  is  the  eighth  one,  namely,  that  a  part  of  a 
township  divided  by  a  navigable  stream  may  be  organized  into  a  township 


Figure   36. 

high  school.  The  only  example  of  this  is  Sterling  High  School,  located 
in  Whiteside  County.  This  district  is  represented  in  Figure  38.  It  will 
be  noted  that  the  district  lies  north  of  the  Eock  Eiver  and  that  although 
the  high  school  is  located  in  Sterling  at  the  extreme  south  side  of  the 
district,  the  lines  of  communloation  lead  directly  to  it.  This  provision 
would  not  have  very  wide  application  elsewhere  in  the  State. 

The  eight  examples  already  discussed  illustrate  all  the  different  ways 
in  which  township  high  schools  may  be  organized  under  the  general 
school  law. 


231 

The  original  Special  Charter  which  was  granted  to  Princeton  in 
1867  was  never  repealed,  and  the  Princeton  Township  High  School  con- 
tinues to  operate  under  its  provisions.  This  charter  is  given  in  full  in 
Appendix  A.  An  outline  of  the  Princeton  District  is  shown  in  Figure 
39.  By  noting  the  various  lines  of  transportation  it  is  readily  seen  that 
the  city  of  Princeton  is  the  natural  center  of  the  township.  It  is  located 
in  Bureau  County.  As  was  shown  in  Chapter  1,  the  people  of  Princeton 
and  those  out  in  the  townships  felt  themselves  to  be  parts  of  the  same 


f=9.    MO.  I     E . 


Figure  37. 

community  and  as  a  result  of  this  feeling  they  organized  this  first  town- 
ship high  school.  They  furnished  the  example  for  all  the  succeeding 
evolution  of  township  high  schools  in  Illinois. 

There  were  two  township  high  schools  organized  under  the  law  of 
1905,  viz.,  Waukegan  and  Collinsville.  This  law  is  given  in  full  in 
Appendix  C. 

Waukegan  Township  High  School  is  located  in  Lake  County  and  is 
represented  in  outline  in  Figure  40.  So  far  as  the  territorial  district. is 
concerned,  it  is  not  different  from  any  township  high  school  district 


which  is  organized  under  the  first  provision  of  the  general  law  discussed 
above.  The  same  is  true  of  the  Collinsville  Township  High  School  dis- 
trict, which  is  located  in  Madison  County,  and  is  represented  in  Figure 
41.  This  law  so  far  as  territory  is  concerned  applies  only  to  school 
townships  and  does  not  have  an  application  so  wide  as  the  general  law. 
The  two  high  schools  mentioned  above  are  the  only  ones  organized  under 
this  law. 

Figures  31  to  41  inclusive  and  the  attending  discussion  give  an  ac- 
count of  all  the  various  kinds  of  township  high  school  districts  which  are 
organized  or  which  can  be  organized  under  the  general  law,  the  Princeton 


STERLIIVG 


Figure  38. 

Charter,  and  the  law  of  1905.  No  figures  are  given  of  high  school  dis- 
tricts which  have  been  organized  under  the  law  of  1911,  because  it  pro- 
vides for  districts  of  any  size  or  shape  which  meets  the  needs  of  the 
community.  The  law  of  1911  printed  as  Appendix  D  was  passed  by  the 
Legislature  to  facilitate  the  organization  of  territory  into  high  school 
districts  and  make  them  conformable  to  local  requirements.  It  provides 
that  any  contiguous  and  compact  territory,  whether  in  the  same  or  dif- 
ferent townships,  may  be  organized  into  a  township  high  school  district. 
This  law  more  than  any  other  township  high  school  law  has  provided  for 
local  needs  in  the  way  of  allowing  a  proper  adjustment  of  the  boundaries 


233 

of  the  high  school  district.  That  it  has  done  so  is  attested  by  the  fact 
that  so  large  a  number  of  high  schools  were  organized  under  it  soon 
after  its  passage. 

This  law,  however,,  is  capable  of  certain  abuses.  Under  it  some 
high  school  districts  have  reached  out  and  taken  territory  which  was  nat- 
urally tributary  to  them  and  which  did  not  find  the  high  school  accessible. 
This  is  manifestly  an  injustice.  Other  high  schools  have  been  organized 


PRINCETON 


Figure  39. 

not  with  the  purpose  of  establishing  high  schools  but  for  the  purpose  of 
preempting  territory  so  that  a  progressive  and  enlightened  community 
might  not  include  it  in  its  high  school  organization.  Such  high  school 
districts  when  once  organized  have  been  allowed  to  lie  dormant  with  no 
attempt  to  organize  a  school  township  and  building  a  building.  Occa- 
sionally a  high  school  district- has  been  organized  for  the  purpose  not  of 
organizing  a  school  and  conducting  it  but  of  paying  tuition  to  other 


IKE  S 


Figure  40. 


235 


districts.  This  latter  purpose  when  undertaken  in  good  faith  would 
seem  to  be  perfectly  in  order.  It  is  the  evils  referred  to  above  that  should 
be  avoided  in  succeeding  legislation  and  in  the  educational  administration 
of  the  schools  of  the  State. 

It  is  now  time  to  address  ourselves  to  the  general  principles  referred 
to  which  should  be  the  governing  ones  in  determining  what  should  be  the 
limits  of  a  high  school  district.  It  is  certain  that  the  political  boundaries 
which  determine  the  county  and  township  lines  should  not  be  the  de- 


fZ   MO.  8 


Figure  41. 

termining  factors.  It  might  be  objected  that  political  administration 
is  conducted  along  these  lines  and  hence  the  finances  of  the  high  school 
district  could  thus  be  better  managed.  The  State  has  had  enough  experi- 
ence already  in  the  conduct  of  districts  which  do  not  follow  these  boun- 
dary lines  to  show  that  it  is  entirely  practical  to  disregard  them.  If 
these  new  township  high  school  districts  are  to  be  organized  without  re- 
gard to  the  precedent  set  by  the  various  political  units,  what  then  are  the 
principles  that  we  should  set  up? 


236 

First  and  foremost,  we  could  set  up  the  principle  that  a  high  school 
should  be  organized  of  sufficient  size  to  give  the  best  results  educationally. 
The  figures  foregoing  show  that  the  schools  begin  to  reach  their  maximum 
efficiency  in  regard  to  buildings,  equipment,  teaching  force,  breadth  of 
course,  and  excellence  of  scholarship  in  the  university  when  they  have 
an  enrollment  of  201  to  300.  Our  first  standard  then  in  setting  up  a 
high  school  district  would  be  to  include  that  number  if  possible.  How- 
ever, if  the  territory  is  too  sparsely  settled  or  if  for  other  social  or  geo- 
graphical reasons  it  is  not  possible  to  set  up  a  district  providing  a  high 
school  as  large  as  this,  a  high  school  smaller  in  enrollment,  say  101  to 
200,  can  be  provided  and  good  results  can  be  attained  with  the  relatively 
narrow  course  of  study  and  narrow  limitations  put  upon  teaching  force, 
equipment,  and  so  forth.  An  enrollment  of  100  should  be  regarded  as 
the  minimum  for  securing  effective  work.  It  is  found,  however,  that 
even  in  the  smaller  high  schools  good  work  has  been  done  in  the  university 
by  graduates  of  suck  high  schools.  But  a  study  of  these  meager  schools 
in  detail  shows  them  to  be  severely  handicapped,  and  the  organization 
of  such  schools  should  be  avoided  if  it  is  at  all  possible. 

In  trying  to  aim  at  a  high  school  of  a  certain  size,  say  200  to  300, 
the  question  at  once  arises  how  is  it  possible  to  determine  that  such  a 
high  school  can  be  set  up  when  there  is  no  precedent  in  the  community 
to  furnish  a  guide?  This  can  be  determined  readily  from  the  experi- 
ence of  the  State  as  a  whole.  It  is  shown  in  Table  LXX  that  a  district 
which  has  from  1,522  to  3,014  people  under  21  typically  can  sustain  and 
does  sustain  a  high  school  of  201  to  300  enrollment.  It  has  also  been 
shown  in  Table  LXXI  that  when  there  are  804  to  1,506  pupils  enrolled 
in  the  elementary  schools  that  the  State  can  and  does  support  a  high 
school  of  201  to  300  enrollment.  A  study  of  the  preceding  tables  thus 
laid  down  will  enable  us  to  determine  how  large  a  high  school  may  con- 
fidently be  organized  on  the  basis  of  the  situation  existing  in  the  com- 
munity as  to  census  of  minors  and  the  enrollment  in  the  elementary 
schools. 

A  second  standard  which  should  guide  in  setting  up  a  high  school 
district  is  the  distribution  of  the  population.  It  is  certain  that  so  far 
as  possible  a  city  or  a  village  should  be  included  in  the  organization  and 
that  the  configuration  of  the  district  should  conform  as  far  as  possible 
to  lines  of  rail  transportation  and  should  take  into  account  the  number 
and  direction  of  good  roads.  A  narrow  consideration  of  this  matter  of 
transportation  should  not  be  a  determining  factor.  In  order  to  make  this 
proposition  as  effective  as  possible  the  State  Legislature  should  not  only 
authorize  but  require  free  transportation  for  pupils  living  in  outlying 
districts. 

A  third  and  possibly  one  of  the  most  important  factors  should  be  the 
matter  of  finance.  If  possible,  a  high  school  district  should  be  organized 
so  as  to  cover  as  wide  a  territory  as  possible,  keeping  in  view  the  other 
considerations  named  above.  The  high  school  within  the  limits  of  acces- 
sibility and  the  needs  of  other  districts  should  be  made  as  large  as  possible 
so  that  the  school  will  have  ample  financial  foundation.  It  has  been 
shown  in  the  preceding  part  of  this  study  that  when  the  people  have  an 
opportunity  to  support  an  efficient  high  school  they  do  so,  and  ample 


237 


opportunity  should  be  granted.  It  is  a  mistake  to  organize  a  number 
of  small  high  schools  centering  about  little  towns.  It  can  serve  no  useful 
purpose  and  all  of  the  schools  so  organized  are  weakened  in  their  progress, 
and  they  are  set  permanently  on  a  basis  that  is  unsatisfactory  and  when 
once  thus  organized  it  is  almost  impossible  to  consolidate  them  with 
others. 

In  this  connection  it  is  important  to  discuss  the  situation  in  the 
State  as  a  whole.  The  State  of  Illinois  itself  comprises  a  State  wide 
school  district  for  the  support  of  the  University  of  Illinois.  It  is  not 
common  to  so  regard  the  State  but  since  all  the  taxable  property  of  the 
State  is  assessed  for  the  support  of  the  University  of  Illinois,  it  is  proper 
to  regard  it  in  this  manner. 

The  entire  State  is  subdivided  into  elementary  school  districts  and 
all  of  the  property  of  the  State  is  taxable  to  support  these  separate  dis- 
tricts. In  addition  to  this  a  tax  is  levied  upon  all  of  the  property  of  the 
State  for  the  State  Distributable  Fund,  and  this  is  distributed  on  the 
basis  of  the  school  population  to  all  of  the  elementary  school  districts 
of  the  State.  It  will  thus  be  seen  that  there  is  a  big  gap  in  the  State's 
provision  for  education.  The  whole  State  is  taxed  for  the  University, 
the  whole  State  is  taxed  for  the  elementary  schools,  a  large  part  of  the 
State  is  not  organized  into  high  school  territory  and  is  not  taxed  for  high 
school  purposes.  Now  the  high  school  sysfem  is  just  as  much  a  part  of 
the  educational  system  of  the  State  as  either  the  elementary  schools  or 
the  University.  This  gap  should  be  closed,  and  all  the  property  in  the 
State  should  be  taxable  for  high  school  purposes  also. 

All  of  the  territory  of  the  State  should  be  reorganized  so  that  high 
school  territory  should  be  coterminous  with  the  boundaries  of  the  State. 
Principles  such  as  were  discussed  above  should  be  the  determining  factors 
in  this  State  wide  reorganization. 

There  are  some  other  factors  bearing  upon  our  problem.  We  will 
now  address  ourselves  to  that  subject.  In  order  to  learn  of  the  character 
of  the  underlying  elementary  school  districts  in  the  township  high  school 
districts  Table  LXXXVI  was  constructed,  which  shows  the  number  of 
underlying  districts  which  comprise  the  various  township  high  school 
districts. 


TABLE  LXXXVI— NUMBER    OF    UNDERLYING    ELEMENTARY   SCHOOL    DISTRICTS 
WHICH  COMPRISE  THE  TOWNSHIP  HIGH  SCHOOL  DISTRICT 


jl 

Single  teacher 
schools. 

Schools 
haxing  two  to 
five  teachers. 

Schools 
having  six  to 
ten  teachers. 

Schools 
having  over  ten 
teachers. 

Total  districts. 

1 

No. 

Per 
cent. 

No. 

Per 
cent. 

No. 

Per 
cent. 

No. 

Per 
cent. 

A.    1-100.... 
B.     101-200.... 
C.    201-300.... 
D.    301-500... 
E.    501-Over.. 

Total  

32 
18 
12 
11 
3 

223 
103 
69 
42 
1 

86.7 
77.4 
75 
52.5 
10 

22 
9 
9 
13 
1 

8.6 
6.8 
9.8 
16.3 
10 

11 
6 
1 
5 
1 

4.2 
4.5 
1.1 
6.3 
10 

1 
15 
13 
20 

7 

9.4 
11.3 
14.1 
25 

70 

257 
133 
92 
80 
10 

8 
7 
8 
7 
3 

7.5 

76 

438 

76.6 

54 

9.4 

24 

4.2 

56 

9.8 

572 

238 

This  information  covers  76  township  high  schools  in  the  State.  The 
first  vertical  column  shows  the"  number  and  percentage  of  the  districts 
which  maintain  single-teacher  schools.  The  second  vertical  column 
shows  the  number  and  percentage  of  the  districts  which  support  schools 
having  from  2  to  5  teachers.  In  the  32  township  high  school  districts  of 
Class  A  there  are  22  underlying  elementary  school  districts  which  sup- 
port schools  having  from  2  to  o  teachers.  There  are  257  elementary 
school  districts  underlying  these  32  township  high  schools.  It  is  clear 
then  that  the  majority  of  the  underlying  districts  of  Class  A  are  rural 
districts.  Of  these  86.7  per  cent  support  one-room  schools,  and  8.6  per 
cent  support  schools  having  from  2  to  5  teachers.  In  other  words,  the 
preparation  of  high  school  students  going  to  these  township  high  schools 
is  distinctly  that  of  the  country  school. 

It  will  be  seen  in  Classes  B  and  C  also  that  there  are  a  large  number 
of  districts  of  this  kind.  However,  the  information  shown  in  this  table 
will  be  illuminated  by  that  brought  forth  in  following  tables.  Note  the 
fact,  however,  that  on  the  average  the  township  high  schools  of  Classes 
A,  B,  C  and  D  have  practically  the  same  number  of  underlying  districts, 
an  average  of  7^.  The  township  high  schools  of  Class  E  have  about 
3  underlying  districts.  In  other  words,  the  high  schools  of  Class  E  are 
based  upon  city  elementary  districts. 

The  next  item  of  information  which  bears  upon  the  character  of 
elementary  schools  contributing  to  the  township  high  schools  is  that 
which  relates  to  teachers.  This  information  is  shown  in  Table  LXXXVII. 


TABLE  LXXXVII— NUMBER  OF  TEACHERS  EMPLOYED  IN  THE  VARIOUS  UNDER- 
LYING DISTRICTS. 


Teachers  in 

Teachers  in 

Teachers  in 

g 

1 

Single 
teacher 
schools. 

districts 
having 
schools 
with  2  to  5 

districts 
having 
schools 
with  6  to  10 

districts 
having 
schools 
with  over  10 

E 

2 

r  school 

1 

ft 

o 

0 

teachers. 

teachers. 

teachers. 

A 

& 

Cj 

+a     ' 

b 

§i 

.2 

0  0 

1 

* 

No. 

Per 
cent. 

No. 

Per 
cent. 

No. 

Per 
cent 

No. 

Per 
cent. 

Total  t 

1 
> 

•4 

I 

5£ 
g.2 
>T3 

•< 

A      1-100 

32 

223 

55  3 

76 

18.9 

91 

22  6 

13 

3  2 

403 

12  6 

257 

1.5 

B.    101-200  

18 

103 

21.3 

19 

3.9 

48 

9.9 

314 

64.9 

484 

26.9 

133 

3.6 

C.    201-300  

12 

69 

12.3 

30 

5.4 

9 

1.6 

452 

80.7 

560 

47 

92 

6 

D.    301-500  

11 

42 

4.7 

42 

4.7 

41 

4.6 

769 

86 

894 

81 

80 

11.2 

E.    501-Over  

3 

1 

.2 

2 

.4 

8 

1.7 

449 

97.6 

460 

153 

10 

46 

Total  

76 

438 

15.6 

169 

6 

197 

7 

1,997 

71.3 

2,801 

36.9 

572 

4.9 

This  table  shows  the  number  and  percentage  of  teachers  teaching  in 
school  districts  supporting  school  of  various  sizes.  For  example,  in 
Class  A  there  are  76  teachers  teaching  in  underlying  districts  supporting- 
schools  having  from  2  to  5  teachers.  It  will  be  readily  seen  that  this 
reveals  the  conditions  as  to  the  character  of  the  elementary  schools  prob- 
ably better  than  the  preceding  table.  An  inspection  of  the  table  in  gen- 
eral shows  that  there  are  2,801  elementary  teachers  teaching  in  schools 
tributary  to  the  76  township  high  schools  involved  in  this  tabulation. 
Here  again  we  note  the  large  proportion  of  rural  teachers  teaching  in  the 


239 


•elementary  schools  of  Class  A.  There  is  also  about  one-fourth  of  the 
teachers  in  Class  B  who  teach  either  in  country  schools  or  in  village 
schools.  The  number  of  teachers  teaching  in  country  and  village  schools 
is  still  a  considerable  factor  in  Class  C. 

The  larger  high  schools  draw  their  pupils  from  city  districts.  This 
fact  is  shown  rather  vividly  in  the  vertical  column  marked  "Average 
number  of  teachers  per  district."  It  will  be  noted  that  as  the  size  of 
a  high  school  increases  the  average  number  of  teachers  per  elementary 
school  district  increases  more  rapidly.  For  instance,  there  is  an  average 
of  ll/2  teachers  per  elementary  school  in  the  districts  underlying  the 
schools  of  Class  A.  There  is  an  average  of  6  per  school  in  the  case  of 
underlying  districts  of  Class  C,  and  so  on. 

The  further  information  bearing  upon  this  consideration  is  shown 
in  Table  LXXXVIII. 

TABLE  LXXXVIII— NUMBER  OF  PUPILS   COMING  FROM  ELEMENTARY  SCHOOLS  OF 
EACH  OF  THE  VARIOUS  SIZES. 


amber  schools 
"eply  to 
questionnaire. 

amber  schools 
•eporting  this 
tern.  | 

unber  pupils 
rom  single 
.eacher  schools. 

r  cent  of  pupils 
rom  single 
teacher  schools. 

amber  of  pupiis 
rom  schools  of 
2  to  5  teachers. 

r  cent  of  pupils 
rom  schools  of 
2  to  5  teachers. 

amber  of  pupils 
[rom  schools 
5  to  10  teachers. 

;r  cent  of  pupils 
rom  schools 
<\  to  10  teachers. 

umber  of  pupils 
rom  school  of 
over  10  teachers. 

sr  cent  of  pupils 
rom  schools  of 
over  10  teachers. 

Limber  of  pupils 
rom  schools  not 
identified.  | 

>r  cent  of  pupils 
'rom  schools  not 
identified. 

)tal  enrollment. 

£ 

fe 

fe 

fc 

fe 

£ 

5 

£ 

fc 

£ 

fc 

ft 

H 

A.    1-100   

25 

23 

507 

37.2 

393 

28.8 

406 

29.8 

35 

2.6 

22 

1.6 

1,363 

B.    101-200  
'C      201-300 

19 

7 

18 

7 

638 
318 

25.9 
17.9 

72 
82 

2.9 
4.6 

785 
108 

31.9 
6 

871 
1,272 

35.3 
71.4 

97 
1 

3.9 

2,463 
1,781 

D.    301-500 

13 

8 

306 

10.7 

323 

11.3 

1,160 

40.7 

978 

34.3 

83 

2.9 

2,850 

E     501-Over 

* 

Total 

69 

56 

1,769 

20.9 

870 

10.2 

2,459 

29 

3,156 

37.3 

203 

2.4 

8,457 

*  No  accurate  data. 

There  are  69  township  high  schools  involved  in  this  tabulation. 
There  are  56  of  these  high  schools  reporting  on  this  item.  This  table 
shows  the  number  of  pupils  coming  from  elementary  schools  of  the  vari- 
ous sizes,  and  the  general  method  of  the  tabulation  is  the  same  as  in 
preceding  tables.  One  of  the  vertical  columns  shows  the  number  of 
pupils  who  are  not  identified.  It  will  be  seen  that  the  information  so 
far  as  it  is  presented  is  very  complete.  It  involves  an  elementary  popula- 
tion of  8,457  high  school  students.  It  will  be  noted  that  2/3  of  the 
pupils  attending  township  high  schools  of  Class  A  come  from  rural  and 
village  schools.  In  Class  B  28  per  cent  of  them  come  from  country  and 
village  schools.  This  table  shows  that  the  schools  of  Class  C  are  also 
measurably  influenced  by  the  country  and  village  schools.  The  work  of 
the  high  schools  of  Class  C  is  based  on  fairly  well  organized  elementary 
school  training. 

Looking  at  the  totals,  it  will  be  noted  that  31  per  cent  of  all  of  the 
pupils  attending  township  high  schools  come  from  country  and  village 
schools ;  29  per  cent  come  from  schools  having  from  6  to  10  teachers,  that 
is,  they  are  fairly  well  graded  and  organized  from  the  point  of  view  of 
elementary  education. 


240 


There  is  no  adequate  body  of  information  available  for  the  study  of 
the  distribution  of  population  such  as  would  give  guidance  in  this  mat- 
ter of  the  organization  of  township  high  schools.  However,  it  is  possible 
to  get  some  information  from  the  statistics  furnished  by  the  United 
States  Census  Bureau.  Table  LXXXIX  was  constructed  on  the  basis 
of  the  U.  S.  Census  Report  for  1910.  It  shows  the  aggregate  popula- 
tion of  villages  of  Illinois  of  500  and  under  at  the  time  the  three  decen- 
nial censuses  were  made,  namely,  1890,  1900  and  1910. 

TABLE  LXIX— POPULATION  OF  ILLINOIS  TOWNSHIPS  AND  VILLAGES. 

POPULATION  OF  ILLINOIS  VILLAGES. 


A 

1-100 

B 

101-200 

C 

201-300 

D 

301-500 

E 

501-Over. 

1910 

162,322 

194,087 

89,579 

38,070 

39,104 

1900 

133,605 

157,856 

68,424 

22,015 

32,436 

1890  

75,529 

106,816 

45,745 

14,525 

17,221 

POPULATION  OF  ILLINOIS  TOWNSFIPS,  EXCLUDING  VILLAGES. 


A 

1-500 

B 

501-1,000 

C 

1,001-1,500 

D 

1,501-2,000 

E 

2,001-2,500 

F 

2,501-3,000 

G 

3,001-4,000 

H 

4,001-5,000 

1910... 

65,191 
78,244 
79,028 

705,341 
807,721 
795,694 

387,119 
417.191 
406,261 

115,372 
121,400 
112,061 

47,290 
40,508 
42,378 

29,826 
24,429 
24,586 

26,814 
18,803 
9,931 

12,991 
12,431 
6,312 

1900 

1890       

The  villages  in  the  compilation  of  this  table  were  grouped  according 
to  population  as  follows :  1  to  100,  101  to  200,  and  so  forth,  as  indicated 
in  the  table.  The  total  population  in  each  group  is  shown  for  each  of 
the  decennial  years  indicated.  An  inspection  of  this  table  shows  that  in 
every  group  there  was  an  increase  in  population  during  the  twenty  years 
covered  by  these  figures.  It  is  very  clear  from  these  figures  that  town- 
ship high  school  districts  which  are  organized  with  one  or  more  villages 
will  easily  secure  a  reliable  school  enrollment.  If  they  begin  with  a  fair 
enrollment,  they  will  surely  increase  in  size  with  the  increase  in  popu- 
lation. 

In  order  to  throw  further  light  upon  this  question  the  population  of 
the  townships  of  Illinois,  excluding  villages,  was  calculated.  These 
townships  are  calculated  in  groups  of  501  to  1,000,  1,001  to  1,500,  etc., 
up  to  50,000  and  over.  An  examination  of  the  figures  shows  that  up 
to  1,500  there  is  a  decrease  in  rural  population  in  the  townships  exclud- 
ing villages.  In  the  townships  having  a  population  above  2,000  and  on 
up  to  5,000  there  is  an  increase.  In  a  good  many  cases  it  is  known  that 
some  of  these  more  populous  townships  are  suburban  townships,  and 
possibly  all  of  them  are.  In  view  of  the  known  tendency  for  villages  and 
cities  to  increase  in  population  and  the  tendency  for  rural  districts  to 
remain  stationary  or  to  decrease  rather  gradually,  the  present  distribu- 
tion of  population  in  Illinois  can  confidently  be  decided  upon  as  a  basis 
for  the  permanent  reorganization  of  the  State  into  high'  school  districts 
covering  the  entire  territory  of  the  State. 


241 

By  way  of  summary,,  in  this  chapter  we  have  noted  that  the  present 
township  high  school  law  of  the  State  provides  for  the  organization  of 
township  high  school  districts  of  many  sizes  and  shapes.  The  experi- 
ence of  the  State  in  the  organization  of  high  schools  furnishes  adequate 
assurance  for  organizing  high  school  districts  on  the  basis  of  the  social 
and  geographical  situation,  disregarding  political  boundaries.  In  other 
words,  the  unit  should  be  the  social  unit  and  not  an  artificial  one  de- 
termined by  political  boundary  lines.  Certain  principles  were  set  down 
as  determining  ones  in  the  organization  of  a  high  school  district,  namely : 

First — There  should  be  a  township  organization  of  sufficient  size 
to  give  the  best  results  educationally. 

Second — The  distribution  of  population  and  transportation  should 
be  an  important  consideration. 

Third — Adequate  financial  provision  should  be  made  for  the  sup- 
port of  the  school. 

Attention  was  called  to  the  fact  that  the  elementary  schools  of  the 
State  are  supported  by  taxation  based  upon  the  entire  assessed  valuation 
of  the  State.  The  State  University  is  similarly  supported.  There  is  a 
wide  gap  here  as  to  high  schools,  and  the  entire  State  should  be  reorgan- 
ized so  that  the  entire  assessed  valuation  of  the  State  should  contribute 
to  the  support  of  high  schools.  Tabulations  of  the  districts,  teachers, 
and  pupils  coming  from  the  elementary  districts  show  that  the  smallest 
township  high  schools  (those  under  100)  are  populated  by  pupils  coming 
from  country  and  village  schools.  A  large  proportion  of  those  going 
to  township  high  schools  of  100  to  200  enrollment  also  come  from  country 
and  village  schools.  They  are  a  considerable  factor  in  township  high 
schools  of  from  200  to  300,  although  in  township  high  schools  of  this 
size  the  dominating  proportion  of  the  student  body  comes  from  well 
graded  elementary  schools.  In  township  high  schools  larger  than  300 
the  pupils  pretty  generally  have  a  well  graded  elementary  school  educa- 
tion. 


—16  I  H  S 


24:2 


CHAPTER  XL 


LAUNCHING  A  TOWNSHIP  HIGH  SCHOOL. 

The  organization  of  the  new  township  high  school  involves  a  new 
social  situation.  Under  the  head  of  a  school  township  or  parts  of  a 
school  township  or  other  territorial  subdivisions  a  combination  must  be 
united  into  a  new  unit  for  the  organization  of  a  new  institution.  This, 
of  course,  means  readjustments  of  various  kinds.  People  are  associated 
in  a  new  way.  Social  inertia  must  be  overcome.  One  result  is  that 
previous  to  and  immediately  following  the  organization  of  a  township 
high  school  it  is  natural  to  expect  some  excitement,  some  friction,  some 
misunderstandings. 

This  is  reflected  in  the  answers  which  were  received  as  a  result  of  a 
questionnaire  which  was  sent  out,  reference  to  which  was  made  in  Chap- 
ter I  of  this  monograph.  In  Question  8  of  this  questionnaire  informa- 
tion was  sought  as  to  the  high  school  facilities  preceding  the  organization 
of  the  township  high  school.  This  information  was  collected  and  is 
tabulated  in  Table  XC. 


TABLE  XC— PREVIOUS  HIGH  SCHOOL  FACILITIES. 


Number 
schools. 

Blank. 

District 
high  school. 

Three 
years 
high  school. 

Two 

years 
high  school. 

None. 

A.    1-100 

25 

13 

5 

5 

2 

B      101-200 

19 

13 

2 

3 

C.    201-300     . 

7 

7 

D     301-500  

13 

8 

1 

•    i 

3 

E.    501-  Over 

5 

1 

4 

Total 

69 

1 

45 

8 

6 

8 

In  this  table  we  have  reports  from  69  township  high  schools,  only 
one  of  which  failed  to  furnish  this  information.  It  will  be  noted  here 
that  8  of  these  township  high  school  districts  had  no  high  school  facil- 
ities previous  to  the  organization  of  the  township  high  school ;  45  of  them 
had  district  high  schools  mentioned  as  providing  some  facilities.  The 
character  of  the  replies  on  this  point  shows  that  these  district  high 
schools  were  in  most  cases  very  inferior.  Eemarks  were  made  by  them  as 
follows :  "Poorly  equipped,"  "Struggling  to  do  creditable  work,"  "Pre- 
vious high  school  had  no  standing,"  "Teacher  also  teaching  in  7th  and 
8th  grades."  To  be  sure  in  some  of  these  district  high  schools  there 
were  creditable  high  school  facilities  with  proper  accrediting  relations, 
and  in  such  cases  as  these  the  motive  for  the  organization  of  a  town- 
ship high  school  was  that  the  high  school  be  maintained  on  an  adequate 


243 


basis,  and  with  ample  financial  support.  In  fact,  the  most  important 
motive  in  the  organization  of  township  high  schools  was  the  financial  one. 
We  have  then  an  interesting  situation  where  there  are  communities  all 
over  the  State  of  -Illinois  who  have  very  poor  high  school  facilities  and 
whose  financial  resources  are  very  limited.  These  same  communities  by 
using  the  township  high  school  device  have  been  able  to  supply  them- 
selves with  enough  financial  resources  to  conduct  successful  high  schools. 
As  was  mentioned  in  the  first  paragraph  above,  the  installation  of  a 
township  high  school  was  expected  to  result  in  agitation,  and  did  so 
result.  Information  on  this  point  was  sought  in  Question  1,  first,  as  to 
the  length  of  time  the  agitation  lasted  between  the  first  proposition  of 
the  township  high  school  and  its  final  establishment.  This  information 
is  shown  in  Table  XCI. 

TABLE  XCI— LENGTH    OF   AGITATION  INCIDENT    TO    FORMING   TOWNSHIP   HIGH 

SCHOOLS. 


- 

Number 
schools. 

Blank. 

Less  than 
six  months. 

Six  months 
to  one  year 
and 
less  than 
two  years. 

Two 
to  five 

years. 

Over  five 

years. 

A     1-100 

25 

1 

16 

5 

3 

B.    101-200  .. 

19 

4 

5 

3 

5 

2 

C.    201-300 

7 

1 

1 

3 

1 

1 

D     301-500 

13 

5 

3 

2 

3 

E     501-Over 

5 

2 

2 

1 

Total  

69 

13 

27 

13 

13 

3 

Of  the  69  township  high  schools  furnishing  information  on  this 
questionnaire  13  do  not  reply  on  this  point.  A  summation  of  the  table 
shows  that  the  length  of '  time  usually  required  for  this  purpose  is 
from  six  months  to  a  year.  Quite  a  number  of  schools  reported  less  than 
six  months,  and  quite  a  number  more,  from  six  months  to  a  year.  On 
the  whole  there  are  40  schools  which  report  that  the  period  between  the 
first  proposal  of  the  township  high  school  and  its  final  establishment  was 
not  longer  than  a  year.  It  is  to  be  noted,  however,  that  in  some  in- 
stances this  agitation  stretched  over  a  period  of  from  three  to  five  years, 
three  stating  that  it  was  longer  than  five  years.  When  a  community  will 
agitate  a  question  like  this  for  as  long  a  period  as  five  years,  it  shows 
that  there  are  certain  interests  in  the  community  that  are  very  persistent 
in  attempting  to  secure  the  best  educational  possibilities  available. 

In  this  matter  of  agitation  information  was  sought  as  to  the  oppo- 
sition to  the  establishment  of  the  township  high  school.  This  informa- 
tion is  of  such  a  character  that  it  does  not  lend  itself  to  tabulation  read- 
ily, yet  by  going  into  detail  it  is  possible  to  display  it  with  some  system. 
The  result  of  this  attempt  is  shown  in  Table  XCII. 


244 


TABLE  XCII— OPPOSITION  TO  ORGANIZATION  OF  TOWNSHIP  HIGH  SCHOOLS. 


Schools. 

a 
1 

a 
3 

,2 

2 

Other  replies. 

A     1-100 

25 

2 

9 

5 

Blank,  1;  opposed  by  wealthy  land  owners,  1;  farmers 

B.    101-200 

19 

1 

4 

living  at  a  distance  from  the  building,  1;  opposed  by 
larger  land  owners,  1;  low  estimate  of  education  es- 
pecially secondary,  1;  ignorance  of  value  of  secondary 
education,  1;  and  high  taxes,  1;  opposed  in  county  and 
carried  in  town,  1;  no  opposition  until  first  taxes  were 
collected  then  much  opposition  until  school  gained 
place  in  the  heads  of  the  people,  1;  bitter  at  first,  carried 
by  one  vote;  opposition  becoming  friends  of  the  school, 
opposition  very  much  reduced  each  year,  1. 
People  at  a  distance  kick,  1  ;  chiefly  from  rural  districts,  1  ; 

C.    201-300  . 

7 

1 

1 

2 

opposition  from  land  owners,  2;  strong  from  country,  1; 
from  farmers,  5;  from  farmers  and  local  jealousy,  1;  not 
familiar  with  the  benefits,  1;  pretty  strong  at  first  when 
the  people  understood  what  was  wanted,  there  was 
little  opposition,  1;  the  opposition  was  due  to  distri- 
bution of  population  being  mostly  at  Herrin,  west  side 
of  the  district,  east  side  opposed,  1. 
Farmers,  2;  opposition  to  a  new  thing  and  afraid  of  high 

D.    301-500 

13 

2 

4 

1 

taxes,  1. 
Parochial  schools,  retired  capitalists,  large  real  estate  in- 

E.   501  Over  

5 

1 

2 

terests,  1;  fear  oicost,  1;  opposition  of  rival  city,  1;  blanks, 
1;  bitter  on  account  of  locat  on  of  building,  1;  lack  of 
information  as  to  what  the  institution  will  do  for  the 
community,  1. 
Larger  number  would  not  benefit  from  high  school,  1; 

611  for,  147  against,  1. 

Total     . 

69 

7 

20 

g 

34 

It  is  to  be  noted  particularly  that  of  the  69  schools  27  of  them  re- 
port "Little  or  no  opposition."  Six  of  the  13  schools  in  Class  D  say 
that  there  was  little  or  no  opposition.  There  are  8  of  the  69  township 
high  schools  which  say  that  there  was  considerable  opposition. 

At  the  right  of  the  table  those  schools  that  cannot  be  classed  under 
the  first  three  heads  are  reported  in  some  detail.  It  will  be  seen  that 
there  are  34  of  such  schools.  Most  of  the  opposition  reported  and  the 
bitterest  is  in  Class  A  and  Class  B.  Various  kinds  of  opposition  are 
reported,  but  it  readily  falls  into  two  or  three  classes.  Some  opposed 
the  organization  of  the  township  high  school  on  account  of  increased 
taxes.  Opposition  often  came  from  wealthy  land  owners  and  farmers. 
A  still  further  cause  of  opposition  was  the  failure  to  appreciate  the  ad- 
vantages of  secondary  education.  Still  another  is  the  disagreement  be- 
tween various  localities  because  of  the  location  of  the  building.  Consid- 
erable opposition  develops  because  of  distance  from  the  building.  In 
some  cases  it  is  noted  that  when  people  became  better  acquainted  with 
the  school  advantages  the  opposition  ceased. 

Corollary  to  the  opposition  which  exists  at  the  time  of  the  organ- 
ization of  the  township  high  school  it  is  desirable  to  note  the  present 
attitude  of  the  patrons  of  these  institutions.  In  order  to  have  some 
information  on  this  point  Question  2  was  included  in  the  questionnaire. 
Information  on  this  question  is  shown  in  Table  XCIII. 


245 


TABLE  XCIII— PKESENT  OPPOSITION  TO  TOWNSHIP  HIGH  SCHOOL 


Is  there  any  opposition  to  it  as  an 
institution  at  present? 

Would  people  be  likely  to 
vote  it  down  now? 

Yes. 

No. 

Blank. 

Other  replies. 

Yes. 

No. 

Blank. 

Other  replies. 

A.    1-100 

25 

19 

7 

6 

7 

1 

8 
2 

8 
5 

1 

Little,7 

2 

18 
18 

2 

Possible,  1; 
hardly,  1;  some 
few,  1. 
Vote  would  be 
close,  1. 

Farmers,  1. 

B.    101-200 

Very  little,  4     . 

C.    201-300     . 

1 

Some,  1;  little, 
2;  very  much 
in  country,  1  . 
Little,  1  

6 
12 

1 

D.    301-500  ..     . 

13 

3 

E.    501-  Over 

5 

Total     

69 

16 

34 

3 

As  above,  16. 

2 

59 

3 

As  above,  5. 

It  will  be  noted  that  there  are  two  parts  to  this  table,  one  under  the 
general  head.  "Is  there  any  opposition  to  it  as  an  institution  at  present?'*' 
the  other,  "Would  people  be  likely  to  vote  it  down  now?" 

Under  the  first  head  the  information  is  set  up  under  two  columns 
"Yes"  and  "No."  Only  three  schools  failed  to  report  on  this  question. 
Under  the  head  of  "Other  replies"  is  listed  that  information  which  could 
not  easily  be  included  in  the  previous  columns. 

It  will  be  noted  that  34  of  the  69  high  schools  say  that  there  is  no 
opposition  at  present.  Sixteen  of  them  declare  that  there  is  opposition 
without  specifying  the  nature  of  it.  The  remainder  of  the  schools  give 
a  qualified  reply,  such  as,  "Little,"  "Very  little,"  "Some,"  "Very  much 
in  the  country."  There  are  16  of  this  kind  of  responses. 

On  the  whole  it  will  be  seen  that  the  opposition  after  the  organiza- 
tion of  the  school  dwindled  away  to  comparative  insignificance. 

The  latter  half  of  the  table  is  constructed  exactly  as  the  former  half. 
A  closer  inspection  of  this  part  of  the  table  shows  that  the  judgment  of 
the  principals  of  85.5  per  cent  of  the  schools,  or  59  in  number,  is  that 
the  people  would  not  vote  the  school  down  if  it  were  submitted  to  a  vote. 
Only  two  declare  categorically  that  the  people  would  vote  it  down.  Only 
three  of  the  list  fail  to  furnish  information. 

A  proper  summation  of  these  figures  makes  it  very  clear  that 
after  a  township  high  school  is  once  organized  it  has  the  favor  of  the 
people  and  they  could  not  therefore  be  induced  to  dispense  with  it. 

In  considering  the  progress  the  township  high  schools  have  made  in 
estimating  their  present  status,  it  is  important  to  note  their  age.  This 
information  was  secured  in  Question  1,  under  the  head  "Date  of  Estab- 
lishment." This  information  is  displayed  in  Table  XCIV. 


246 


TABLE  XCIV— AGE  OF  TOWNSHIP  HIGH  SCHOOLS. 


Number  schools. 

% 

s 

Established 
1  to  5  years. 

1  Established 
6  to  10  years.  | 

Established 
11  to  15  years. 

Established 
16  to  20  years. 

J 

•§8 
30 

"w  <N 

Over  25  years. 

! 

? 

<< 

Median. 

First  Quartile. 

Third  Quartile. 

Quartile 
Deviation.  1 

A.    1-100 

25 
19 

1 

21 

9 
2 

9 

3 

8 
2 

3 

6 
9 
23 
18 

2-3 
6 
8 
22 
17 

1 
3 
2 
14 

4 
8 
16 
27 

I 

6* 

B      101-200 

2 
1 
2 

C.    201-300 

7 

2 
2 
8 

D     301-500 

13 

1 

6 
1 

E.    501-Over     .. 

5 

1 

Total  

7 

69 

1 

34 

14 

5 

1 

7 

9.5 

5-6 

2 

15 

7i 

One  of  the  69  schools  failed  to  report  on  this  item.  The  rest  of  the 
information  is  reported  under  the  heads  "Established  1  to  5  years," 
"6  to  10  years."  The  median,  the  first  quartile  and  the  third  quartile 
are  shown  in  the  latter  part  of  the  table.  The  median  age  of  all  the 
township  high  schools  in  the  State  is  5%  years,  the  average  is  9%  years. 
It  is  to  be  noted  that  in  Class  A  the  median  age  is  2%  years,  in  Class 
B,  6  years.  The  class  having  the  longest  median  age  is  Class  D,  in 
which  this  median  is  22  years. 

A  consideration  of  these  figures  shows  that  the  township  high  school 
as  an  institution  in  Illinois  is  relatively  young,  and  considering  this  fact 
in  connection  with  the  previous  researches  made  in  this  monograph,  the 
remarkable  development  of  this  institution  is  shown.  One  of  the  reasons 
why  the  schools  of  Class  A  have  had  such  meager  equipment,  teaching 
force,  plant,  etc.,  is  the  fact  that  they  are  so  young.  In  a  word,  they 
cannot  be  said  to  have  established  themselves  until  they  have  developed 
into  Class  B  or  Class  C.  It  should  be  said,  however,  that  there  are  7 
high  schools  in  this  list  which  are  over  25  years  of  age. 

As  was  stated  in  Chapter  2,  the  item  which  usually  causes  the  most 
controversy  and  which  makes  or  mars  the  institution  often  is  the  matter 
of  the  first  bond  issue.  In  Table  XCV  is  given  the  information  on 
this  point. 

The  schools  here  are  distributed  according  to  their  size  at  the  be- 
ginning. It  will  be  noted  that  some  of  the  high  schools  districts  under- 
take to  start  their  schools  with  a  rather  insignificant  bond  issue.  Three 
of  them  began  with  an  average  bond  issue  of  over  $100,000.  The  median, 
however,  in  Class  C  is  $55,000.  When  we  take  into  consideration  the 
fact  that  this  table  shows  these  schools  distributed  according  to  their 
size  at  the  time  of  the  first  issue  of  bonds,  the  meagerness  of  the  bond 
issue  becomes  very  evident.  For  example,  the  fact  that  it  is  the  habitual 
practice  of  schools  of  200  to  300  in  size  to  have  a  bond  issue  of  only 
$55,000  shows  that  there  was  not  very  good  planning  done  at  that  time. 

These  initial  bond  issues  are  redistricted  in  Table  XCVI,  according 
to  the  size  of  the  schools  at  present. 

For  example,  the  median  initial  bond  issue  of  the  schools  of  Class  D 
is  $30,000,  for  Class  C,  $50,000.  This  table  merely  reinforces  in  a  more- 
striking  way  the  fact  brought  out  in  the  preceding  one,  namely,  that  in 
the  first  bond  issue  very  little  foresight  was  used.  The  bond  issues  were- 


247 


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248 


in  most  cases  too  small.  The  people  believed  that  they  were  issuing  suf- 
ficient bonds  and  building  for  a  given  territory  in  the  future,  whereas 
their  action  was  merely  a  temporary  makshift.  A  reference  to  Chapter 
3  where  the  present  capital  investment  of  these  high  schools  is  shown 
will  make  clear  the  fact  that  practically  all  of  these  schools  have  added  to 
their  capital  investment  very  materially  since  their  first  bond  issue.  This 
fact  brings  out  two  principles  very  clearly.  One  is  that  the  people  after 
they  have  once  organized  a  township  high  school  learn  to  hold  it  in  high 
regard  and  are  thoroughly  willing  to  provide  the  capital  necessary  for  its 
permanent  housing  and  equipment.  The  other  is  that  the  State  needs 
to  adopt  some  policy  arid  formulate  a  body  of  information  which  will 
guide  communities  when  they  initiate  a  great  undertaking  like  this.  In- 
formation is  available  to  show  how  large  a  building  a  community  should 
build  when  it  has  a  population  of  a  certain  size  and  an  elementary  en- 
rollment of  a  certain  size.  Furthermore,  no  plant  should  be  constructed 
with  a  building  plan  so  inelastic  that  proper  additions  cannot  be  made. 
Practically  all  high  school  buildings  should  be  constructed  with  the  defin- 
ite notion  that  the  building  is  incomplete.  Provision  should  be  made 
for  later  additions  which  will  be  in  harmony  with  previous  construction 
and  which  will  not  violate  the  unity  of  previous  construction.  Further- 
more, the  interiors  of  high  school  buildings  should  be  so  constructed  as 
to  be  remodeled  easily.  Many  considerations  point  to  the  fact  that  the 
interiors  of  high  school  buildings  should  be  of  a  very  elastic  nature.  Not 
only  does  the  increase  in  high  school  population  indicate  this  but  the 
change  in  courses  of  study,  and  the  rapid  developments  in  educational 
policy  make  necessary  the  radical  changes  in  interior  construction.  It 
i£  impossible  to  foresee  all  of  this ;  the  consequence  is  that  the  best  man- 
ner of  providing  for  it  is  to  construct  buildings  having  a  modifiable  in- 
terior. 

In  this  matter  of  growth  it  is  interesting  to  note  the  situation  in  the 
township  high  schools.  Information  was  collected  on  this  point  in  Ques- 
tions 6  and  9,  and  was  tabulated  in  Table  XCYII. 

TABLE  XCVII— GROWTH  OF  TOWNSHIP  HIGH  SCHOOLS. 


• 

First  year. 

Fifth  year. 

Present. 

s 

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bO 

.ss  . 

bi) 

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24 

50 

40-41 

11 

55 

51 

10 

25 

59 

54 

18 

B.    101-200 

19 

19 

86 

84 

15 

121 

120 

40  7 

19 

137 

139 

59  3 

C.    201-300  '.. 

7 

5 

146 

181 

5 

195 

233 

33  6 

7 

254 

243 

74 

D.    301-500  

13 

10 

157 

183-186 

9 

212 

213 

35 

13 

362 

344 

130.5 

E.    501-Over  

5 

4 

293 

3 

592 

535 

102 

5 

103 

851 

245  7 

Total 

69 

62 

102 

80 

43 

164 

124 

60.8 

69 

226 

139 

121.5 

This  table  shows  the  enrollment  during  the  first  year  of  the  history 
of  the  institution,  the  fifth  year,  and  the  present  year.  There  are  62 
schools  which  reported  on  this  item.  The  average  and  the  median  are  cal- 


249 

culated  for  each  of  the  periods  of  time  specified.  It  will  be  noted  that 
on  the  whole  the  township  high  schools  grew  over  60  per  cent  during  the 
first  five  years,  and  121.5  per  cent  up  to  the  present  time.  These  per- 
centages are  based  on  the  average  in  each  case. 

This  is  a  very  marked  evidence  of  the  approval  of  the  patrons  of 
these  schools,  and  it  is  also  an  evidence  of  the  firmness  of  their  founda- 
tion. 

Information  was  sought  regarding  the  situation  so  far  as  enrollment 
is  concerned  during  the  fifth  year,  because  the  first  five  years  is  likely  to 
tell  the  story  as  to  a  new  institution.  In  about  that  length  of  time  it 
will  have  established  itself  or  will  have  failed. 

It  will  be  seen  again  that  in  Classes  B,  C  and  D  the  growth  is  be- 
tween 33  per  cent  and  40  per  cent.  In  Class  E  the  growth  is  102  per 
cent. 

The  last  column  shows  the  percentage  of  growth  up  to  the  present. 
The  larger  schools  seem  to  have  grown  more  rapidly.  That  means,  of 
course,  the  high  schools  were  relatively  nearer  of  a  size  at  the  beginning 
but,  certain  ones  of  them  had  very  rapid  growth. 

By  way  of  summary,  in  the  inauguration  of  a  township  high  school 
we  note  that  the  reasons  for.  the  establishment  of  a  township  high  school 
in  a  community  are  meager  high  school  facilities  and  a  lack  of  financial 
resources.  The  agitation  for  a  township  high  school  from  the  time  of 
its  proposal  until  it  is  finally  voted  is  usually  from  six  months  to  a  year. 
In  a  large  majority  of  cases  it  is  less  than  a  year,  although  there  are 
some  cases  extending  over  a  considerable  period  of  time.  The  opposition 
to  the  inauguration  of  a  township  high  school  is  of  various  kinds.  A 
few  general  categories,  however,  are  the  position  of  large  land  holders, 
failure  to  understand  the  value  of  secondary  education,  opposition  be- 
tween rival  cities,  and  the  fear  of  taxes.  In  the  township  high  schools 
already  organized  these  have  been  overcome. 

When  a  township  high  school  is  once  organized  it  is  clear  that  it 
rapidly  wins  the  favor  of  the  people  and  the  opposition  becomes  of  a 
relatively  negligible  quantity.  This  is  reinforced  also  by  the  fact  that 
the  township  high  school  grows  in  enrollment  very  rapidly.  The  people 
see  its  value.  They  patronize  it  and  they  support  it. 

The  fact  was  very  clearly  brought  out  that  the  township  high  school 
is  a  relatively  youthful  institution.  The  median  age  for  the  State  as  a 
whole  is  5%  years.  The  larger  township  high  schools  are  relatively 
older  than  the  smaller  ones,  as  would  be  expected. 

It  was  shown  that  the  initial  bond  issue  was  too  small  in  size  usually, 
and  that  people  failed  to  see  the  future  requirements  of  the  school. 
Mention  has  been  made  of  the  rapid  growth  in  enrollment  of  the  town- 
si  lip  high  school. 


250 


CHAPTER  XII. 


CONCLUSION". 

It  is  the  purpose  of  the  present  chapter  to  gather  together  all  of  the 
salient  facts  which  have  appeared  in  the  preceding  discussion  and  the 
conclusions  which  have  been  drawn  from  them  into  a  single  discussion 
covering  the  entire  field  of  secondary  education  in  the  State  of  Illinois. 
To  ttiat  end  it  will  be  necessary  to  review  the  various  chapters  one  by 
one  and  then  integrate  the  discussion  into  a  single  whole. 

We  find  in  the  Second  Chapter  that  the  organization  of  the  first 
township  high  school  at  Princeton  provides  very  significant  material  in 
view  of  the  development  of  township  high  schools  since  that  time.  It 
was  definitely  the  purpose  of  the  people  of  Princeton  and  vicinity  to 
organize  a  community  high  school,  recognizing  that  the  school  situation 
was  a  single  one  and  that  all  of  the  people  living  in  the  immediate  en- 
virons of  the  city  of  Princeton  naturally  belonged  together  in  the  organ- 
ization of  such  a  school. 

The  discussions  of  the  later  chapters  have  shown  that  this  is  the 
greatest  need  in  the  State  of  Illinois,  namely,  the  organization  of  the 
territory  of  the  State  into  high  school  districts  whose  boundaries  shall 
be  determined  by  social  considerations  united  with  certain  determining 
factors  dependent  upon  the  geographical  configuration  of  the  neighbor- 
hood and  its  facilities  for  transportation. 

Another  very  significant  feature  in  the  organization  of  Princeton 
Township  High  School  was  the  fact  that  it  was  divided  not  on  the  basis 
of  an  8/4  organization,  such  as  that  upon  which  most  of  the  high  schools 
of  the  State  are  organized.  It  was  divided  on  the  basis  of  elementary 
school  and  advanced  work.  The  first  examination  of  Principal  Boltwood 
was  for  the  purpose  of  determining  who  should  be  admitted  to  the  town- 
ship high  school  and  who  retained  in  the  organization  or  called  advanced 
students.  The  fact  is  in  the  history  of  the  school  that  it  has  throughout 
its  career  retained  the  eighth  grade  in  the  high  school  organization  as  a 
part  of  its  legitimate  work.  The  strong  movement  now  noted  in  educa- 
tional circles  toward  the  organization  of  junior  high  schools  makes  this 
significant,  and  the  organization  of  township  high  school  districts  com- 
prising the  entire  territory  of  the  State  would  provide  an  opportunity  for 
the  organization  of  junior  high  schools  on  a  very  satisfactory  basis. 

The  special  charter  which  was  granted  to  Princeton  in  1867  seemed 
to  fit  the  needs  of  such  a  community  so  well  that  most  of  its  provisions 
were  included  in  the  general  -township  high  school  law  in  1872.  Since 
that  time  many  township  high  schools  have  been  organized  throughout 
the  State  on  the  basis  of  this  law  as  exhibited  in  the  main  body  of  the 
discussion  heretofore  presented.  This  general  high  school  law  provides 


251 

that  the  high  school  shall  have  a  relatively  large  amount  of  territory 
supporting  it.  Its  first  advantage  then  is  that  of  providing  a  wide  basis 
for  taxation.  This  added  facility  in  taxation  insures  the  maintenance  of 
the  high  school  on  an  adequate  financial  basis.  A  second  advantage  of 
the  township  high  school  is,  as  noted  above  in  connection  with  the 
discussion  concerning  Princeton,  that  it  covers  the  territory  and  com- 
munity naturally  tributary  to  the  high  school.  The  high  school  thus  is 
the  center  of  a  natural  social  unit,  and  this  social  unit  should  be  the 
real  basis  on  which  high  schools,  and  all  schools  for  that  matter,  should 
be  organized.  A  third  advantage  is  that  it  gives  a  proper  volume  of 
population  for  the  organization  of  the  high  school  itself.  It  was  found 
in  connection  with  studies  in  later  chapters  that  there  were  certain  ad- 
vantages accruing  to  those  high  schools  which  had  enrollments  of  a  cer- 
tain minimum  size.  This  topic  will  come  up  for  further  discussion  in 
later  portions  of  this  chapter.  Another  advantage  of  the  type  of  organ- 
ization discussed  in  the  Second  Chapter  is  that  it  centralizes  the  legal 
control  of  the  high  school  in  a  small  board.  In  the  general  law  this 
board  is  composed  of  five  members.  A  fifth  advantage  is  that  this  board 
together  with  the  executive  officers  which  it  employs  is  able  to  devote  its 
exclusive  attention  to  the  development  of  secondary  education,  and  it  is 
not  distracted  by  giving  a  portion  of  its  time  to  elementary  problems. 
A  very  marked  disadvantage  of  this  type  of  organization  remains  to  be 
noted.  By  it  the  school  system  is  broken  into  two  independent  parts. 
There  is  nothing  in  the  figures  heretofore  exhibited  to  indicate  that  this 
division  of  control  decreases  efficiency.  This  is  probably  due  to  the  fact 
that  the  high  schools  in  cities  having  a  unified  control  are  as  separate 
from  the  elementary  schools  as  the  township  high  schools.  However  this 
separation  ought  not  to  be  the  case  in  either  group  of  schools.  The  artic- 
ulation of  elementary  and  secondary  schools  is  one  of  the  problems  in 
education  at  the  present  time.  The  unity  of  courses  of  study  extending 
through  the  elementary  schools  and  the  high  school;  provisions  for 
accelerating  the  progress  of  individual  pupils  through  the  schools; 
economical  management  of  buildings,  equipment  and  supplies;  efficient 
distribution  of  the  work  of  teachers;  all  these  are  items  which  ought  to 
be  handled  with  greater  efficiency  in  a  single  system  than  in  a  divided 
one.  The  fact  is  they  are  not  well  handled  in  either.  The  junior  high 
school  movement  has  great  promise  of  solving  some  of  these  problems  and 
of  cementing  together  the  elementary  and  secondary  schools. 

However  there  are  two  compelling  reasons  for  continuing  the  pres- 
ent process  of  increasing  the  number  of  township  high  schools.  First, 
this  process  should  be  continued  until  the  State  provides  financial  re- 
sources for  all  high  schools  equal  to  the  provision  now  made  for  town- 
ship. Second,  very  definite  progress  is  made  by  the  organization  of 
township  high  school  districts  of  large  area.  Each  district  may  include 
a  number  of  cities,  villages  and  rural  communities  or  it  may  include 
a  central  town  and  the  surrounding  country  or  it  may  be  entirely  rural. 
In  any  case  after  it  is  organized  and  after  the  passage  of  time  it  becomes 
solidified  into  a  community  which  becomes  accustomed  to  working  to- 
gether for  educational  interests.  At  some  future  time  this  community  by 
law  can  be  joined  together  into  a  single  system  under  a  unified  control. 


252 

If  this  unification  or  establishment  of  large  districts  were  under- 
taken at  the  present  time  in  the  case  of  the  elementary  schools  as  well  as 
the  high  schools  it  would  result  in  a  Jarger  number  of  relatively  small 
units.  Every  small  neighborhood  would  feel  that  it  required  an  entire 
school  system.  In  the  township  school  type  of  organization  a  larger 
unit  is  more  likely  to  be  created.  Meantime  no  serious  results  will  come 
as  none  have  so  far  come  from  the  lack  of  articulation  growing 
out  of  the  divided  control  since  educators  have  not  yet  solved  the 
problem  of  articulation  between  the  elementary  schools  and  the  high 
schools. 

With  these  conclusions  based  upon  the  organization  of  the  school 
itself  after  an  examination  of  its  legal  constitution,  we  must  next  pass 
to  a  study  of  the  actual  accomplishments  of  the  township  high  school 
as  this  is  exemplified  in  the  practice  of  the  schools  themselves.  This 
purpose  is  accomplished  in  two  ways.  First,  by  the  preparation  of  a 
table  which  epitomizes  the  statistics  shown  in  the  various  chapters.  Sec- 
ond, by  an  examination  of  the  conclusions  reached  in  each  chapter. 

According  to  the  first  of  these  plans,  Table  XCVIII  was  compiled, 
and  is  a  recapitulation  of  the  statistics  worked  out  in  the  body  of  this 
investigation. 

The  first  vertical  column  in  this  table  shows  the  chapters  from 
which  the  material  is  drawn.  The  second  vertical  column  shows  the  num- 
ber of  the  table  in  which  the  statistics  are  exhibited.  The  third  vertical 
column  displays  the  items  on  which  the  statistics  are  furnished.  The 
fourth  vertical  column  shows  the  unit  in  terms  of  which  the  statistics  are 
figured.  The  vertical  columns  which  follow  are  the  usual  classifications 
of  the  schools  into  City  High  School  and  Township  High  School,  ar- 
ranged according  to  their  size,  in  the  manner  heretofore  followed.  In 
the  column  marked  "Unit"  it  will  be  noticed  that  the  unit  is  a  Class  or  $, 
or  a  Pupil,  or  whatever  else  may  be  the  factor  of  school  organization 
discussed.  These  units  are  the  medians  of  the  tables  from  which  they 
are  drawn  in  most  cases.  They  are  not  medians  in  the  case  of  per- 
centages, as  that  would  be  manifestly  impossible  when  the  percentages  are 
based  upon  the  total  number  of  schools  represented  in  each  class  and 
group. 

With  this  preliminary  explanation  it  would  seem  that  the  table 
could  be  easily  read.  For  example,  in  reading  the  first  vertical  column 
on  "Sites  and  Buildings"  it  will  be  seen  readily  that  City  High  Schools  of 
Class  A  have  a  median  investment  of  $10,000;  Township  High  Schools 
of  Class  A,  $18,500 ;  City  High  Schools  qf  Class  B,  $30,000 ;  Township 
High  Schools  of  Class  B,  $45,000,  and  so  forth.  It  is  very  easy  by  this 
method  to  discover  the  relation  that  the  various  groups  of  schools  bear 
to  each  other  on  the  basis  of  the  item  under  consideration,  and  if  com- 
parison is  wanted  on  any  topic  it  may  be  found  at  the  appropriate  point 
in  the  table,  and  the  table  may  be  read  horizontally,  and  this  compara- 
tive situation  stands  out  very  definitely. 

The  table  is  capable  of  an -entirely  different  use  which  if  anything 
is  more  valuable.  By  reading  the  vertical  columns  a  complete  charac- 
terization may  be  had  of  any  group  of  high  schools  shown  in  the  table. 
School  authorities  having  in  their  charge  a  school  of  a  certain  size, 


253 


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Total  Teaching  Experience 
School  Teachers  -.  
Total  High  School  Experienc 
School  Teachers  
High  School  Teachers'  Tenur 
Position  
Number  of  Teaching  Positions 
Salaries  of  Teachers  

Length  of  Term  in  Davs  
Number  of  Tuition  Pupils  
Number  of  High  School  Gradm 
Number  of  Persons  under  21 
School  District  

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District  
Eighth  Grade  Enrollment  in  H 
District  

Number  of  High  School  Grac 
tending  Advanced  Institutio 

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of  the  Various  High  Schools 
one  or  more  Courses  
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High  Schools  
Median  Average  of  Scholarship 
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Size  of  Township  High  School 

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256 

whether  it  be  a  city  or  township  organization,  can  by  reading  the  appro- 
priate column  discover  the  relation  of  their  own  school  to  others  in  the 
State.  For  example,  in  the  case  of  a  township  high  school  of  Class  C, 
it  will  be  noted  that  the  median  investment  in  sites  and  buildings  is 
$75,000,  the  median  investment  in  equipment  is  $5,000,  the  total  capital 
investment  is  $79,000,  the  cost  of  maintaining  the  plant  is  $664,  and 
so  on  down  the  table. 

It  will  be  readily  seen  that  it  is  the  purpose  of  this  table  to  give  a 
birdseye  view  of  the  schools  of  the  State  so  far  as  this  body  of  statistics  is 
concerned.  It  is,  of  course,  not  designed  to  give  a  complete  body  of 
information  since  it  confines  itself  largely  to  a  presentation  of  the 
medians.  In  order  to  have  this  complete  display  of  information,  refer- 
ence necessarily  should  be  made  to  the  chapters  and  the  appropriate 
tables  where  the  situation  is  completely  displayed.  A  warning  is  in  place 
at  this  point,  since  there  will  be  a  tendency  on  the  part  of  some  to  regard 
a  median  as  representing  the  most  desirable  situation.  As  was  said  in 
a  previous  discussion  in  this  investigation,  a  person  wishing  to  character- 
ize a  group  of  schools  in  a  certain  particular  should  examine  the  situation 
with  the  middle  50  per  cent  in  view.  If  the  school  under  consideration 
comes  within  the  middle  50  per  cent,  it  at  least  is  not  erratic.  A  local 
school  situation  should  be  discussed  in  detail  on  the  basis  of  its  local 
peculiarities,  and  any  reasons  for  making  it  vary  from  the  usual  situa- 
tion should  be  taken  into  consideration.  Usually  progressive  school  offi- 
cers will  prefer  in  matters  of  expense,  training  of  teachers  and  other 
items  having  to  do  with  the  efficiency  of  the  school,  to  locate  their  own 
school  in  the  third  qfuarter,  that  is,  between  the  median  and  the  third 
quartile. 

Since  the  table  above  mentioned  has  been  prepared,  it  is  not  neces- 
sary to  state  in  language  the  characterizations  that  might  be  made  con- 
cerning the  various  groups  of  schools  on  the  basis  of  this  table.  The  table 
itself  exhibits  these  characterizations,  and  it  may  be  read  across  or  down 
according  to  the  needs  of  the  reader. 

We  now  pass  to  a  statement  of  the  conclusions  which  have  been 
reached  in  the  preceding  chapters. 

Capital  investments  in  township  high  schools  in  all  grades  of  schools 
exceed  those  in  city  high  schools.  There  is  also  a  larger  expenditure  for 
permanent  equipment  in  the  case  of  township  high  schools  than  in  the 
case  of  city  high  schools.  It  costs  more  to  maintain  a  student  in  the 
township  high  school  than  in  the  city  high  school.  The  township  high 
schools  are  more  completely  equipped  in  every  way  except  one,  na'mely, 
the  library.  The  larger  expenditure  of  money  in  the  township  high 
schools  is  due  to  the  fact  mentioned  above,  namely,  that  the  board  of  edu- 
cation and  its  executive  officers  have  more  money  available  for  this  pur- 
pose and  their  attention  is  concentrated  upon  the  single  problem  of 
secondary  education  and,  hence,  it  is  more  adequately  provided  for  in  a 
financial  way.  The  fact  may  well  be  brought  out  at  this  point  also  that 
the  people  will  gladly  support  financially  an  educational  institution  if 
the  financial  organization  is  of  such  character  that  they  can  manage  it. 
The  obvious  lesson  is  that  the  State  should  be  so  organized  as  to  make 
the  funds  available. 


25? 

A  similar  situation  is  evident  upon  an  examination  of  the  finances 
of  the  schools.  The  expenses  increase  directly  as  the  enrollment.  Town- 
ship high  schools  cost  more  than  city  high  schools.  This  greater  cost 
is  due  to  the  greater  equipment  provided,  the -wider  range  of  electives 
offered  and  the  greater  amount  of  vocational  work  provided. 

It  was  found  in  the  study  of  the  capital  investment  and  also  in 
current  finances  that  there  is  a  greater  deviation  in  the  case  of  township 
high  schools  than  in  city  high  schools,  in  fact,  there  is  greater  deviation 
in  township  high  schools  than  in  city  high  schools  throughout  the  study, 
also  that  in  the  township  high  schools  there  is  greater  tendency  for 
variation  in  courses  of  study,  in  methods  and  practice  in  teaching,  in 
other  words,  township  high  schools  are  more  willing  to  experiment.  This 
is  probably  due  to  the  fact  that  executive  officers  are  free  in  the  formula- 
tion of  their  policies  and  have  better  opportunity  of  handling  new 
enterprises  in  a  financial  way. 

In  an  examination  of  the  course  of  study  it  was  found  that  the 
larger  the  high  school  the  smaller  ^the  number  of  prescribed  units  laid 
down,  and  the  larger  the  high  school  the  larger  the  number  of  electives 
offered.  The  larger  high  schools  provide  wider  opportunities  for  voca- 
tional work.  As  to  the  distinction  between  township  high  schools  and 
city  high  schools,  it  was  shown  that  the  township  high  schools  because  of 
their  greater  financial  resources  provide  a  larger  amount  of  vocational 
work.  Corollary  to  the  fact  noted  above  wherein  the  township  high 
schools  show  greater  costs  in  every  particular,  it  is  evident  in  the  matter 
of  the  course  of  study  that  they  provide  better  opportunities  for  the 
students  in  a  vocational  way  and  in  the  form  of  a  wider  range  of 
electives. 

It  was  found  in  the  study  of  the  executive  officers  that  the  largest 
proportion  of  principals  and  superintendents  have  collegiate  degrees. 
It  was  found  also  that  the  total  number  of  years  of  school  experience 
on  the  part  of  principals  increase?  with  the  size  of  the  school.  This  is 
true  also  with  reference  to  his  high  school  experience  and  his  tenure  of 
office  in  his  present  position.  The  high  school  nrincipal  has  a  longer 
teaching  experience,  a  longer  high  school  experience,  and  a  longer 
tenure  of  office  in  his  present  position,  in  the  township  high  schools'  than 
in  the  city  high  schools.  It  was  noted  in  this  connection  that  the  high 
school  principalship  is  entirely  too  transient  and  that  remedial  legisla- 
tion of  some  sort  should  be  undertaken  to  obviate  this  evil.  It  is  clear 
that  the  policies  of  any  school  will  be  more  stable  and  satisfactory  if  the 
position  of  the  principal  is  more  secure.  The  salaries  of  township  high 
school  principals  are  markedly  greater  than  the  salaries  of  city  high* 
school  principals,  and,  in  fact,  are  greater  than  the  salaries  *of  city 
superintendents  who  have  in  their  systems  of  schools  a  high  school  of  a 
corresponding  size.  The  salaries  of  township  high  school  principals  are 
greater  than  the  salaries  of  the  principals  of  the  schools  of  the  North 
Central  Association. 

In  the  study  of  the  teaching  population  it  was  found  that  the  larger 
the  school  the  greater  the  academic  training  of  the  teachers  employed 
in  it.  On  the  whole,  however,  the  experience  of  the  teachers  in  the  State 

—17  I  H  S 


is  pathetically  short.  Their  experience  in  the  high  school  and  their 
tenure  of  office  in  their  present  position  is  ridiculously  short.  The 
teachers  in  the  larger  schools  teach  a  smaller  number  of  periods  per  day 
and  a  smaller  number  of  subjects.  As  regards  a  comparison,  township 
high  school  teachers  have  a  greater  academic  training,  they  teach  a 
smaller  number  of  classes  per  day  and  a  smaller  number  of  subjects  than 
city  high  school  teachers.  The  fact  was  brought  out  also  that  about  40 
per  cent  of  the  teaching  positions  of  the  State  are  occupied  by  men,  a 
relatively  large  proportion,  but  that  the  amount  of  money  paid  to  the 
men  teachers  was  almost  half  of  the  total  amount,  due  to  the  fact  that 
the  salaries  of  men  are  higher  than  those  of  women.  The  salaries  paid 
to  township  high  school  teachers  are  greater  than  those  paid  to  city 
high  school  teachers. 

In  an  examination  of  the  time  units  in  the  various  schools  it  was 
noted  that  they  are  relatively  uniform.  The  number  of  recitations  in  the 
daily  program,  the  number  of  40-minute  periods,  and  the  amount  of  time 
spent  in  the  various  periods  is  practically  the  same.  There  is  a  smaller 
number  of  tuition  pupils  coming  to  the  township  high  schools  than  to 
the  city  high  schools,  clue  to  the  fact  that  the  township  high  schools 
cover  the  neighborhood  naturally  tributary  more  completely  than  do  the 
city  high  schools.  The  township  high  school  has  in  its  enrollment  a 
smaller  number  in  proportion  to  the  elementary  enrollment  of  its  under- 
lying districts  than  the  city  high  school.  It  has  a  smaller  enrollment  in 
proportion  to  the  eighth  grade  population  of  its  underlying  districts, 
and  a  smaller  enrollment  in  proportion  to  the  population  under  twenty- 
one  in  its  underlying  districts.  All  of  these  conditions  are  due  to  the 
fact  that  it  covers  a  wider  territory  and  transportation  is  more  difficult. 

All  of  the  factors  so  far  discussed  must  necessarily  have  a  bearing 
upon  the  efficiency  of  the  school.  The  final  test  of  the  efficiency  of  a 
school,  however,  is  in  the  character  and  the  resulting  initiative  and  moral 
ability  of  the  students  coming  from  the  school.  There  are  no  adequate 
tests  for  these  values  so  far  in  the  science  of  education.  Probably  the 
most  significant  measure  we  have  is  the  performance  of  the  graduates,  of 
these  various  schools  in  the  colleges  and  universities  to  which  they  £0. 
Because  of  this  fact  the  study  recorded  in  Chapter  IX  was  undertaken. 

It  was  found  in  this  chapter  that  a  larger  percentage  of  graduates 
of  city  high  schools  fail  in  one  or  more  courses  in  the  University  of 
Illinois  than  graduate?  of  township  high  schools,  that  in  the  number  of 
courses  failed  there  was  almost  an  equal  percentage  of  courses  failed 
by  students  from  the  township  high  schools  and  students  from  the  city 
high  schools,  there  being  an  advantage  slightly  in  favor  of  the  city 
high  schools  of  .15  of  one  per  cent.  The  median  average  in  scholarship 
is  in  favor  of  the  township  high  schools.  The  township  high 
schools  have  the  largest  percentage  whose  averages  fall  below  70.  In 
Classes  A,  B  and  C,  that  is,  the  smaller  schools,  they  furnish  the  smallest 
percentage  of  those  who  fall  below  70.  In  Classes  D,  E  and  F  the 
township  high  schools  furnish  the  largest  percentage  of  those  who  fall 
below  and  also  the  largest  percentage  of  those  who  are  above  85. 

The  manifest  conclusion  here  is  that  on  the  whole  the  township 
high  schools  have  furnished  a  better  grade  of  students  to  the  University 


259 

of  Illinois  than  the  city  high  schools.  The  outstanding  fact,  however, 
is  that  the  township  high  schools  are  markedly  superior  to  the  city  high 
schools  so  far  as  these  university  grades  are  concerned  when  they  have 
underlying  districts  with  well  graded  schools. 

It  was  found  in  particular  in 'Chapter  10  that  the  experience  of  the 
State  in  the  organization  of  the  high  schools  on  this  basis  furnishes  an 
adequate  foundation  on  which  to  organize  high  school  districts  on  the 
basis  of  social  and  geographical  situation  disregarding  political  boun- 
daries. The  school  law  of  1872,  as  heretofore  noted,  provides  eight 
different  forms  of  combination  for  districts  and  portions  of  townships. 
Since  these  high  school  districts  have  been  formed  in  a  great  variety 
of  sizes  and  shapes,  they  have  furnished  an  adequate  demonstration  of 
the  fact  that  schools  can  be  administered  without  attention  to  these 
boundary  lines. 

Out  of  this  situation  three  rather  definite  principles  can  be  out- 
lined for  the  organization  of  a  new  high  school  district. 

1.  There  should  be  a  school  organization  of  sufficient  size  to  give 
the  best  results  educationally.     An  examination  of  the  teaching  situa- 
tion and  the  course  of  study  will  show  that  so  far  as  the  course  is  con- 
cerned it  can  best  be  administered  in  a  high  school  of  not  less  than  200 
in  size.     In  a  high  school  of  from  200  to  300  approximately  one-half 
of  the  work  offered  may  be  elective,  thus  providing  properly  for  the 
natural  difference  existing  among  children.     In  schools  of  this  size  it 
is  relatively  easy  to  provide  two  years  of  work  in  the  vocational  field 
along  several  lines — commercial,  technical,  agricultural,  and   so  forth. 
It  is  in  this  group  of  schools  where  the  first  advantages  appear  so  far 
as  size  is  concerned  in  the  matter  of  careers  of  graduates  in  the  uni- 
versity.    At  this  point  in  size  a  markedly  small  number  of  high  school 
graduates  fail  in  one  or  more  courses,  and  it  is  in  cases  of  schools  of  this 
size  where  a  much  smaller  percentage  of  courses  are  failed  in  the  uni- 
versity.    Consequently  a  strong  effort  should  be  made  to  incorporate 
districts  which  will   include   at  least   200   pupils.     Since,   however,   it 
will  be  necessary  to  incorporate  some  districts  which  will  have  less  than 
this  number  a  great  effort  should  be  made  that  no  district  will  be  so 
small  in  population  as  to  have  a  high  school  of  less  than  100.     High 
schools  of  less  than  100  are  the  least  efficient  of  all  and  are  very  ex- 
pensive to  operate.     The  method  of  determining  the  number  of  minors 
to  include  in  a  high  school  district  to  predetermine  a  high  school  of 
certain  size  is  described  in  Chapter  8. 

2.  Another  very  definite  principle  which  should  stand  out  in  the 
organization  of  new  high  school  districts  is  the  provision  of  an  ade- 
quate taxing  basis  for  the  support  of  the  school.     It  was  pointed  out 
previously  on  this  point  that  the  present  legal  provisions  for  the  sup- 
port of  schools  were  established  when  elementary  schools  were  practlc- 
tically  the  only  schools  in  mind  when  the  provisions  were  made.     Since 
that  time  the  whole  system  of  secondary  education  has  been  built  up 
without  additional  facilities  being  provided  for  it  in  a  financial  way. 
The   township   high    school    provides   the    most   successful    method    of 
meeting  this   added  financial  burden,   but  this  is  never  provided   for 
satisfactorily  unless  the  area  taxed  is  sufficiently  wide. 


260 

3.  A  third  principle  is  the  outlining  of  the  high  school  district 
in  such  a  way  as  to  take  care  of  problems  of  transportation.  The  school 
should  be  accessible.  In  order  that  this  may  be  done  the  configuration 
of  the  territory  and  its  geographical  situation  must  be  studied.  Where 
pupils  live  at  a  distance  free  transportation  should  be  provided  at 
public  expense. 

It  was  found  in  the  study  of  this  matter  of  underlying  districts 
that  in  the  schools  of  1  to  100  enrollment  the  largest  proportion  of  the 
student  population  came  from  country  and  village  schools.  The  pupils 
coming  from  country  and  village  schools  are  also  a  large  factor  in 
township  high  schools  ranging  in  enrollment  from  100  to  200.  In  high 
schools  larger  than  300  the  pupils  usually  come  from  well  graded  ele- 
mentary school  districts. 

Two  factors  were  found  to  be  operative  in  inducing  people  to  organ- 
ize township  high  schools.  One  was  the  meager  high  school  facilities 
already  possessed,  and  the  other  the  inadequate  financial  resources  of 
such  high  schools.  The  organization  of  a  township  high  school  pro- 
vided better  high  school  facilities  by  way  of  Dividing  larger  financial 
resources. 

It  was  found  that  the  opposition  to  the  organization  of  township 
high  schools  was  of  various  kinds,  namely,  opposition  of  land  holders, 
failure  to  understand  the  value  of  secondary  education,  the  opposition 
arising  from  jealously  between  rival  communities,  and  the  fear  of 
additional  taxes.  It  was  found  that  after  the  high  schools  were  in 
existence  for  some  time  that  this  opposition  very  largely  disappeared. 
The  school  rapidly  wins  the  favor  of  the  people  and  the  opposition  be- 
comes a  relatively  negligible  quantity.  This  is  also  reinforced  by  the 
fact  that  a  township  high  school  grows  in  enrollment  very  rapidly.  The 
fact  was  brought  out  that  the  township  high  school  is  a  relatively  young 
institution.  It  was  found  that  in  the  organization  of  the  township 
high  school  the  initial  bond  issues  were  practically  always  too  small. 

The  net  conclusion  in  a  single  statement  that  might  be  drawn 
from  the  foregoing  study  is : 

1.  That  a  school  increases  in  efficiency  as  it  increases  in  size. 

2.  That  the  township  high  school  is  more  efficient  than  the  city 
high  school  because  of  the  fact  that  this  particular  type  of  organization 
permits   the    accumulation    of   larger   financial    resources    and,    hence, 
provision  of  all  kinds  of  advantages.     Furthermore,  that  this  type  of 
organization  centers  attention  and  study  upon  secondary  problems  to 
the  exclusion  of  others. 

3.  Those  township  high  schools  are  most  efficient  which  have  well 
organized  underlying  elementary  schools. 

A  final  word  of  encouragement  for  the  reorganization  of  the  schools 
of  the  State  may  be  found  in  the  fact  that  although  there  is  considerable 
opposition  to  the  organization  of  the  township  high  schools  in  their 
inception  this  opposition  vanishes  rapidly  as  the  people  have  experience 
with  the  new  institution.  On  the  basis  of  this  experience  we  should  be 
encouraged  to  reorganize  all  the- territory  of  the  State  into  high  school 
districts,  being  assured  that  the  people  will  be  in  support  of  this  move- 
ment when  the  new  organization  is  once  under  way.  Similarly,  all  kinds 


201 

of  schools  can  be  organized  into  larger  units  and  thereby  increase  their 
efficiency  and  at  the  same  time  retain  the  support  of  the  people. 

PROGRAM  OF  LEGISLATION. 

In  a  consideration  of  this  topic  based  upon  the  preceding  conclu- 
sions it  must  be  kept  in  mind  that  what  is  said  now  is  largely  opinion 
although  it  is  hoped  well  authenticated  opinion,  whereas  the  preceding 
statements  have  been  based  upon  an  adequate  basis  of  fact. 

The  interests  of  the  State  so  far  as  high  school  education  is  con- 
cerned are  now  in  jeopardy.  An  emergency  exists  and  a  new  program 
must  be  formulated.  The  fact  is  that  the  State  is  completely  organized 
so  far  as  the  University  is  concerned  and  so  far  as  elementary  educa- 
tion is  concerned.  The  entire  State  is  a  single  school  district  for  the 
support  of  the  University  of  Illinois.  The  entire  State  is  divided  up 
into  elementary  school  districts  for  the  support  of  elementary  schools. 
A  portion  of  the  State  is  organized  into  districts  which  support  high 
schools.  As  in  the  case  of  the  University  and  the  elementary  schools, 
the  entire  State  should  be  included  in  high  school  districts. 

The  problem  that  now  confronts  the  educational  leaders-  of  the 
State  and  the  General  Assembly  is  the  best  method  of  accomplishing 
this  purpose.  The  experience  of  the  State  so  far  as  its  township  high 
schools  is  concerned  ought  to  be  pertinent  in  the  solution  of  this  prob- 
lem. In  the  first  place,  small  villages  and  in  some  cases  more  separated 
communities  have  been  welded  together  in  the  support  of  a  township 
high  school  which  is  in  every  respect  efficient.  When  such  a  town- 
ship high  school  district  was  organized  jealousy  in  the  community  was 
rife.  As  experience  demonstrated  to  the  people  the  benefits  of  the 
local  high  school  these  jealousies  have  disappeared.  It  would  seem  then 
that  the  local  preferences  in  the  organization  of  high  school  districts 
should  be  totally  disregarded  and  that  the  central  principle  determining 
its  organization  should  be  the  efficiency  of  the  high  school. 

On  the  basis  of  the  three  principles  discussed  above  it  is  true 
that  there  will  be  certain  districts  in  the  State  that  it  would  be  impos- 
sible to  so  weld  into  a  high  school  district  because  of  the  fact  that  the 
population  is  so  widely  scattered.  In  such  cases  where  it  is  manifestly 
impracticable  to  locate  a  high  school,  a  high  school  district  should  be 
organized  for  the  purpose  of  paying  the  tuition  of  those  pupils  who  have 
an  ambition  to  secure  a  high  school  education  by  attending  high  school 
outside  the  districts  in  question.  It  is  also  true  that  there  is  territory 
adjacent  to  large  city  districts  which  could  not  easily  be  organized  into 
township  high  school  districts.  This  territory  is  naturally  tributary 
educationally  as  well  as  commercially  to  the  center  of  population  which 
it  surrounds.  In  this  case  it  would  be  difficult  to  combine  the  territory 
with  the  city  district  mentioned  because  of  the  fact  that  the  outside 
population  would  not  be  willing  to  bear  their  portion  of  the  expense  of 
supporting  the  elementary  schools.  On  the  other  hand,  it  would  be 
unwise  to  organize  additional  high  schools  because  of  the  fact  that 
there  would  not  be  a  large  enough  number  of  people  for  such  a  high 
school.  In  this  case,  as  in  the  other,  the  obvious  thing  to  do  is  to  organ- 


ize  the  district  for  the  purpose  of  paying  tuition.  With  these  two  pro- 
visions for  unorganized  territory  it  ought  to  be  possible  to  organize  all 
the  territory  of  the  State  of  Illinois  into  high  school  districts  and  thus 
close  up  the  last  great  gap  in  the  free  education  of  the  people. 

One  more  thing  remains  to  be  discussed,  namely,  the  articulation 
of  the  high  school  with  the  underlying  elementary  schools.  It  was  noted 
in  the  preceding  study  that  the  graduates  from  those  other  schools  hav- 
ing a  large  rural  and  village  constituency  did  less  efficient  work  in  the 
University  of  Illinois.  The  best  students  in  the  university  came  from 
township  high  schools  of  large  financial  resources  and  having  well  organ- 
ized elementary  school  districts  contributing  to  them.  There  is  not  in 
this  body  of  statistics  anything  showing  that  the  articulation  between  the 
high  school  and  the  elementary  school  is  more  perfect  in  the  case  of  city 
high  schools  than  in  the  case  of  township  high  schools.  A  priori  con- 
siderations lead  one  to  assume  that  the  articulation  between  the  high 
school  and  the  elementary  school  is  more  satisfactory  between  city  high 
schools  and  their  underlying  schools.  It  would  be  interesting  to  gather 
statistics  bearing  upon  this  point,  but  there  is  not  enough  difference 
to  make  a  showing  in  the  statistics  regarding  the  career  of  scholarship  in 
the  University  of  Illinois.  A  consideration  of  this  fact,  however,  should 
not  induce  us  to  underestimate  the  value  of  trying  to  secure  proper 
articulation  between  elementary  schools  and  high  schools.  If  this  is 
done,  all  sorts  of  devices  for  securing  cooperation  might  be  put  into 
effect,  such  as  the  readjustment  o"f  courses,  the  study  of  the  harmonious 
selection  of  text  books,  the  training  of  the  teachers  as  a  part  of  a  single 
body  of  instructors,  the  organization  of  junior  high  schools,  and  so 
forth.  Undoubtedly  when  proper  methods  of  articulation  have  been 
worked  out  it  will  be  found  that  the  liiie  distinguishing  the  elementary 
and  high  school  work  will  not  be  sharply  drawn,  but  the  work  of  the 
one  will  gradually  merge  into  the  work  of  the  other  and  the  school 
system  will  actually  be  one  in  spirit  and  operation  as  well  as  in  name. 
However,  the  best  immediate  step  to  take  is  not  to  organize  consolidated 
districts  with  a  high  school  at  the  top  of  the  system.  This  will  inevit- 
ably result  in  the  organization  of  districts  too  small  to  secure  the  best 
results.  The  best  plan  is  to  build  upon  the  evolution  of  the  high  schools 
in  the  State  as  it  has  so  far  progressed.  Organize  high  school  districts 
covering  a  territory  sufficiently  wide  and  a  transportation  system  suffi- 
ciently compact  and  a  body  of  population  sufficiently  large  to  secure  the 
kind  of  high  school  which  will  give  the  greatest  efficiency^.  After  these 
more  efficient  high  schools  are  organized  and  thoroughly  established  in 
the  State  through  a  series  of  years  of  experience  then  later  readjust- 
ments may  unite  all  the  elementary  schools  and  the  high  schools  into 
a  single  educational  institution  under  a  centralized  management.  Every 
locality  in  the  State  then  would  have  a  complete  system  of  education 
from  the  first  primary  grade  through  the  high  school,  the  high  school 
being  in  direct  contact  with  the  University.  We  would  then  have  a 
complete  system  of  American  education. 


APPENDICES. 


APPENDIX  A. 

Special  Charter  of  the  Princeton  Township  High  School  District  upon 
which  the  General  Township  High  School  Law  of  1872  was  Modeled. 

Ax  ACT  to  Incorporate  the  Princeton  High  School  District. 

SECTION"  1.  Be  it  enacted  by  the  People  of  the  State  of  Illinois,  rep- 
resented in  the  General  Ass&rnbty,  That  all  the  territory  now  included 
within  the  boundaries  of  the  township  of  Princeton,  in  the  county  of 
Bureau  and  State  of  Illinois,  together  with  such  territory  as  may  be 
hereafter  added  thereto,  be  and  is  hereby  established  a  common  high 
school  district,  to  be  known  as  the  "Princeton  High -School  District." 

SEC.  2.  The  government,  care  and  superintendence  of  the  public 
high  schools  within  said  district,' and  of  the  funds  and  estate,  both  real 
and  personal,  belonging  to,  and  which  may  be  hereafter  acquired  by  or 
conveyed  to  said  district,  shall  be  vested  in  a  board  o.f  education  of  said 
high  school  district. 

SEC.  3.  The  following  named  persons,  to  wit:  John  H.  Bryant, 
Flavel  Bascom,  Jacob  Critzman,  Mathew  Trimble  and  George  D.  Ide, 
shall  compose  the  first  board  of  education  of  said  high  school  district, 
until  their  successors  are  duly  elected  and  qualified  as  hereinafter  pro- 
vided. It  shall  be  the  duty  of  said  persons  or  a  majority  of  them,  to  as- 
semble within  sixty  days  after  the  passage  of  this  Act,  at  the  court  house 
in  said  Bureau  Count}7,  and  organize  as  such  board  of  education  by 
electing  one  of  their  number  president,  and  one  as  clerk  of  said  board. 
They  shall  appoint  a  treasurer  of  said  high  school  district,  and  shall 
have  all  the  powers,  and  be  governed  in  all  other  respects  by  the  provi- 
sions of  this  Act,  as  far  as  the  same  may  be  applicable.  The  said  per- 
sons, or  a  majority  of  them,  shall  have  the  power  to  fill  vacancies  in  their 
number  occasioned  by  declination,  disqualification,  resignation,  death,  or 
removal  from  said  high  school  district. 

SEC.  4.  The  persons  composing  said  board  of  education,  provided 
for  in  the  third  section  of  this  Act,  shall  hold  their  offices  as  follows: 
Two  of  them  until  the  first  Tuesday  of  June,  186&,  two  until  the  first 
Tuesday  of  June,  1869,  and  the  fifth  until  the  first  Tuesday  of  June, 
1870.  The  respective  terms-  of  office  of  the  members  of  said  board  ap- 
pointed and  provided  for  as  aforesaid,  shall  be  determined  by  them  at 
their  first  meeting  by  casting  lots. 

SEC.  5.  On  the  first  Tuesday  of  June,  1868,  and  on  the  first  Tuesday 
of  June  annually  thereafter,  an  election  shall  be  held  to  elect  successors 
to  those  members  whose  terms  of  office  are  then  expiring,  and  to  fill  all 
vacancies,  if  any,  occurring  in  said  board,  during  the  preceding  year. 


The  persons  elected  at  such  annual  elections  shall  hold  their  offices  for 
three  years,  or  until  the  expiration  of  the  unfinished  terms  which  they 
have  been  elected  to  fill,  as  the  case  may  be. 

SEC.  6.  The  said  board  of  education,  or  the  remaining  members 
thereof,  shall  have  the  power  to  fill,  until  the  ensuing  annual  election  in 
said  high  school  district,  all  vacancies  in  said  board  occasioned  by  death, 
resignation,  disqualification,  failure  to  elect,  or  removal  from  said  dis- 
trict, and  to  fill  by  appointment,  vacancies  among  the  officers  of  said 
board  occasioned  by  any  of  the  causes  aforesaid.  The  members  of  said 
board,  and  the  treasurer  appointed  by  them,  shall,  previous  to  entering 
upon  their  official  duties,  take  an  oath,  in  addition  to  those  prescribed 
by  the  Constitution  of  this  State,  faithfully  and  impartially  to  discharge 
the  duties  of  their  respective  offices  to  the  best  of  their  abilities. 

SEC.  7.  Notice  of  such  annual  elections  shall  be  given  by  the  clerk 
of  said  board  by  posting  written  or  printed  notices  of  the  time,  places 
and  objects  of  such  elections  in  three  of  the  most  public  places  in  said 
district,  at  least  ten  days  before  such  elections  are  held,  and  also  by  pub- 
lishing a  similar  notice  in  some  newspaper  published  in  said  district,  by 
one  insertion  at  least  one  week,  previous  to  the  day  of  election.  Said 
elections  shall  be  held  at  the  usual  place  for  holding  general  elections  in 
said  township,  and  shall  be  by  ballot.  The  president  of  said  board,  and 
two  members  thereof,  to  be  selected  by  said  board,  shall  be  judges,  and 
the  clerk  of  said  board  clerk  of  such  elections ;  but  if  any  of  said  officers 
shall  fail  to  attend,  or  refuse  to  act,  the  electors  assembled  shall,  viva 
voce,  choose  three  judges  and  a  clerk  of  the  election.  A  poll  book  shall 
be  kept  by  the  clerk,  registering  the  names  of  the  voters,  and  the  persons 
receiving  the  highest  number  of  votes  shall  be  declared  elected.  In  case 
of  a  tie  in  any  election,  the  judges  of  election  shall  decide  the  same  by 
casting  lots  on  the  day  of  the  election.  Elections  shall  be  opened  at  the 
hour  of  10  :00  o'clock  a.  m.,  and  close  at  the  hour  of  5  :00  o'clock  p.  m. 
The  judges  and  clerk  shall  certify  to  the  board  of  education  the  names 
of  the  persons  so  elected  members  of  said  board,  the  term  for  which  they 
were  elected,  and  the  number  of  votes  each  person  voted  for  received,  and 
shall  return  their  certificate  and  said  poll  book  to  the  said  board  within 
ten  days  after  such  election. 

SEC  8.  Said  "board  of  education  is  hereby  created  a  body  corporate 
and  politic,  by  the  name  of  the  "Board  of  Education  of  the  Princeton 
High  School  District/'  and  that  name  may  sue  and  be  sued,  plead  and 
be  impleaded,  answer  and  be  answered  unto,  in  all  courts  and  places,  con- 
tract and  be  contracted  with,  and  have  perpetual  succession  and  a  com- 
mon seal,  and  the  same  may  alter  or  change  at  pleasure.  Said  board 
may  exercise,  in  the  furtherance  of  trie  objects  contemplated  by  this  Act, 
all  the  powers  conferred  on  the  school  trustees  of  townships  or  boards  of 
directors  of  school  districts,  by  any  law  now  in  force,  or  that  may  be 
thereafter  enacted.  Said  board  shall  have  power  to  receive  and  hold,  in 
their  said  corporate  name,  all  real  and  personal  property  that  may  be 
conveyed,  given  or  devised  to  it  for  said  district,  and  in  the  said  corporate 
name  to  dispose  of  and  convey  the  same,  for  the  benefit  of  said  district. 
All  conveyances  of  real  estate  made  by  said  board  shall  be  executed  and 
acknowledged  by  the  president  of  said  board,  and  attested  by  the  corpor- 


265 

ate  seal  and  by  the  signature  of  the  clerk.  Provided,  that  all  such  con- 
veyances shall  be  authorized  by  a  resolution  of  said  board :  And,  pro- 
vided, further,  that  all  sales  and  conveyances  of  school  houses,  buildings 
and  grounds  appurtenant  thereto,  shall  be  first  determined  by  a  majority 
of  the  votes  cast  by  the  electors  of  said  district,  upon  the  submission  by 
said  board  by  the  question  of  said  sale  at  an  annual  election,  due  notice 
having  been  first  given  as  provided  in  section  7  of  this  Act. 

SEC.  9.  Said  board  of  education  shall  have  the  following  additional 
powers : 

First — It  shall  have  power  to  establish,  .maintain  and  regulate  a 
high  school,  with  the  necessary  departments,  within  said  district, 

Second — To  prescribe,  by  regulations,  the  qualifications  for  admis- 
sion into, said  high  school  and  its  respective  departments,  of  persons  re- 
siding in  said  district,  free  of  charge  for  tuition  therein,  and  also  to  pro- 
vide for  the  admission  into  the  same  of  persons  residing  without  said 
district,  upon  such  terms  and  payment  for  tuition  as  said  board  shall 
regulate. 

Third — To  have  the  custody  and  control  of  all  high  school  property 
in  said  district. 

Fourth — To  erect,  hire  or  purchase  buildings  suitable  for  the  pur- 
poses of  such  high  school  and  its  necessary  department. 

Fifth — To  buy  or  lease  sites  for  such  high  school  and  its  depart- 
ments, with  its  necessary  grounds. 

Sixth — To  purchase,  lease,  control  and  improve  play  grounds  or 
parks  adjacent  to  such  high  school  or  its  necessary  departments. 

Seventh — To  furnish  said  high  school  and  its  departments  with 
necessary  fixtures,  furniture,  books,  apparatus  and  libraries,  and  to  pro- 
vide for  the  proper  care,  protection  and  maintenance  of  the  same. 

Eighth — To  employ  teachers,  determine  their  duties  and  fix  the 
compensation  to  be  allowed  them  from  time  to  time,  and  at  any  regular 
or  special  meeting,  all  the  members  of  said  board  being  present  at  such 
special  meeting,  to  dismiss  such  teachers  or  any  of  them,  for  gross  im- 
morality, incompetency,  or  other  adequate  cause. 

Si-nth — To  direct  what  studies  and  branches  of  learning  shall  be 
taught,  and  what  text  books  shall  be  used  in  said  high  school  and  it® 
several  departments. 

Tenth — To  establish  departments  or  different  grades  in  said  high 
school,  and  to  make  all  necessary  rules  and  regulations  for  the  admission 
and  advancement  of  applicants  and  pupils,  and  for  the  government  of 
said  high  school  and  its  departments;  to  suspend  or  expel  pupils  guilty 
of  refractory,  disobedient  or  immoral  conduct,  or  possessed  of  any  in- 
fectious or  contagious  disease. 

Eleventh — To  appoint  agents  and  servants  to  execute  any  matter 
conducive  to  the  interests  of  said  high  school  district,  consistent  with  this 
Act,  and  for  their  services  to  pay  them  such  reasonable  compensation 
as  said  board  shall  fix. 

Twelfth — For  the  purpose  of  building  a  high  school  and  other  school 
buildings,  and  additions,  thereto,  for  the  use  of  said  high  school  district, 
and  of  repairing  and  improving  the  same,  and  purchasing  real  estate  for 
such  buildings,  libraries,  apparatus,  and  other  objects  contemplated  by 


this  Act,  or  of  paying  indebtedness  contracted  tlicrrfor,  it  shall  be  lawful 
for  said  board  to  borrow  money,  at  a  rate  of  interest  not  exceeding  10 
per  cent  per  annum,  and  to  issue  bonds  therefor  in  sums  of  not  less  than 
one  hundred  dollars,  which  bonds  shall  be  signed  by  the  president  and 
attested  by  the  clerk  and  seal  of  said  board. 

SEC.  10.  Said  board  of  education  shall  have  full  power,  and  it  shall 
be  its  duty,  to  determine  the  amount  of  money  needed  to  maintain  said 
high  school  and  its  department,  and  to  pay  all  expenses  of  said  district, 
of  every  description,  for  each  school  year,  and  to  determine  the  amount 
of  money  needed  at  any  time  for  the  purpose  of  purchasing,  leasing  or 
improving  grounds  for  said  high  school  objects,  or  of  purchasing,  leas- 
ing, building,  finishing,  repairing,  improving  or  extending  their  said 
high  school  houses,  or  of  procuring  furniture,  libraries  and  apparatus,  or 
of  paying  the  indebtedness  of  said  high  school  district.  Said  board  shall 
have  power  and  authority  to  levy  taxes  upon  all  the  taxable  real  and 
personal  property  in  said  district,  for  the  purpose  of  raising  said  amounts 
of  money  so  determined  by  it.  Said  board  shall  designate  the  amount 
of  money  required  for  the  maintenance  and  expenses  of  said  high  school 
and  its.  departments  for  each  school  year,  as  aforesaid,  "school  tax ;"  and 
the  amount  required  for  any  other  purposes  specified  in  this  section,  said 
board  shall  designate  "school  house  tax."  It  shall  be  the  duty  of  said 
board  to  ascertain,  at  any  meeting  prior  to  the  second  Monday  of  Sep- 
tember, annually,  the  rate  per  cent  upon  the  assessment  of  real  and  per- 
sonal property  in  said  high  school  district  for  State  and  other  purposes 
for  that  year,  needed  to  be  levied  to  raise  the  amount  of  "school  tax" 
determined  upon,  and  what  rate  per  cent  upon  the  same  will  be  needed  to 
raise  the  amount  of  "school  house  tax"  determined  upon ;  which  rate  or 
rates  shall  be  certified  by  the  president  and  attested  by  the  clerk  of  said 
board,  and  returned  to  the  clerk  of  the  county  court  of  said  Bureau 
County  on  or  before  the  second  Monday  of  September,  annually.  The 
certificate  or  certificates  so  made  may  be  in  the  following  form,  as  near 
as  may  be : 

The  Board  of  Education  of  the  Princeton  High  School  District  re- 
quires the  rate  of per  cent  on  the  dollar  to  be  levied  on  the 

taxable  property  of  said  district,  for.  the  year ,  for  thejpur- 

pose  of  school  tax,  (or  school  house  tax,  as  the  case  may  be). 

Dated  this  day  of 18 

A B President. 

Attest:         C D Clerk. 

It  shall  be  the  duty  of  said  county  court  to  extend  the  tax  or  taxes  so 
certified  to  him  in  one  column,  under  the  name  of  "high  school  tax,"  ac- 
cording to  said  rate  or  rates  upon  the  book  for  that  year  of  the  collector 
of  taxes  for  the  territory  embraced  in  said  high  school  district ;  and  the 
said  taxes  shall  be  collected  as  other  taxes  are  or  may  be,  and,  when  col- 
lected, shall  be  paid  over,  on  demand,  to  the  treasurer  of  said  district. 
The  said  county  clerk  and  collector  shall  receive  for  their  services  the 
same  compensation  as  now  js  or  may  be  provided  for  extending  and  col- 
lecting district  school  taxes.*  It  is,  however,  provided  that  the  rate  to  be 
levied  in  any  one  year  for  school  house  tax  shall  not  exceed  five  per  cent 
on  said  valuation. 


267 

SEC.  11.  Said  Board  of  Education  shall  hold  regular  meetings  once 
each  month,  at  such  time  and  place  as  shall  be  designated  by  the  rules  of 
said  board.  Said  board  shall  make,  from  time  to  time,  all  needful  rules 
and  regulations  for  its  own  government  and  that  of  all  officers,  teachers 
and  agents  appointed  by  said  board,  and  for  the  custody,  control,  care 
and  management  of  the  school's  fund  and  property  belonging  at  any  time 
to, said  district. 

SEC.  12.  Said  board,  shall,  annually,  at  its  stated  meeting  in  July, 
elect  a  president  and  a  clerk,  both  of  whom  shall  be  members  of  said 
board,  and  who  shall  hold  their  offices  for  one  year.  Said  board  shall 
also,  at  said  meeting,  appoint  a  treasurer  of  said  high  school  district,  who 
shall  not  be  a  member  of  said  board,  and  who  shall  hold  his  office  during 
the  pleasure  of  said  board.  The  said  record  shall  be  signed  by  the 
president  and  attested  by  the  clerk;  and  the  same  or  certified  copies 
thereof,  under  the  hand  of  said  clerk  and  the  seal  of  said  board,  shall  be 
prim  a  facie  evidence  of  the  proceedings  of  said  board  in  all  courts  and 
places.  Said  board  may  adjourn  from  time  to  time,  and  the  president 
or  any  two  members  thereof,  may  call  special  meetings,  at  such  time  and 
in  such  manner  as  the  rules  of  said  board  shall  provide.  Three  members 
of  said  board  shall  constitute  a  quorum  for  the  transaction  of  business. 
In  the  absence  of  the  president  or  clerk,  the  board  may  appoint  a  presi- 
dent or  clerk  pro  tern. 

SEC.  13.  Said  Board  of  Education  may  make  such  rules  concerning 
the  duties  of  the  treasurer  and  the  disposition  of  the  funds  and  other 
property  in  his  custody,  as  are  not  inconsistent  with  this  Act. 

SEC.  14.  The  treasurer  of  said  high  school  district  shall  execute, 
within  ten  days  from  his  appointment,  a  bond,  with  two  or  more  good 
and  sufficient  sureties,  to  be  approved  by  said  board,  which  bond  shall  be 
filed  and  recorded  by  the  clerk,  shall  be  made  payable  to  said  board  in  a 
penalty  to  be  fixed  by  said  board,  and  conditioned  that  he  will  safely 
keep,  and,  from  time  to  time,  pay  over,  upon  the  order  of  said  board, 
all  moneys  and  effects  which  shall  come  into  his  hands  or  under  his  con- 
trol as  such  treasurer,  and  will  deliver  over  to  his  successor  in  office,  all 
books,  papers,  securities,  property  and  moneys  remaining  in  his  hands, 
and  belonging  to  said  district,  and  will  faithfully  discharge  the  duties 
of  his  office  according-  to  law,  and  the  rules  made  by  said  board  from 
time  to  time.  It  shall  be  the  duty  of  said  treasurer  to  receive  and  keep 
all  moneys  clue  and  payable  to  said  district.  He  shall  keep  an  accurate 
account  of  all  moneys  received  and  paid  out  by  him,  in  a  record  to  be 
kept  for  that  purpose,  and  shall  pay  out  no  moneys  or  other  effects  except- 
ing on  the  order  of  said  board.  He  shall  retain  vouchers  for  all  moneys 
so  paid  out,  and  shall  receive  from  all  moneys  paid  out  on  such  orders, 
a  fee,  to  be  fixed  by  said  board,  not  exceeding  two  per  cent.  He  shall 
pottle  his  accounts  with  said  board  at  the  August  meeting  in  each  year, 
and  shall  produce  his  books  and  papers  to  said  board  whenever  required 
so  to  do.  All  orders  on  said  treasurer  shall  state  for  what  purpose  issued, 
shall  be  signed  by  the  president,  and  registered  and  attested  by  the  clerk 
of  said  board. 

15.  ^"o  person  shall  be  eligible  to  serve  as  a  member  of  said  board, 
or  to  vote  at  any  election  provided  for  in  this  Act,  or  to  act  as  judge  or 


268 

clerk  ef  such  election,,  unless  he  shall  be  a  resident  of  said  district,  and 
have  the  qualifications  of  an  elector  at  township  elections. 

SEC.  16.  The  said  Board  of  Education  is  hereby  made  the  succes- 
sors in  office  of  the  directors  of  the  high  school  district,  organized  in  the 
said  township  of  Princeton,  and  known  by  the  name  of  "The  High  School 
District  of  Princeton;"  which  said  last  named  district  is  hereby  merged 
in  the  high  school  district  created  by  this  Act.  All  high  school  build- 
ings, property  and  real  estate  belonging  to  said  high  school  district  of 
Princeton,  are  hereby  conveyed  to  and  vested  in  said  Board  of  Education 
and  its  successors  in  office,  in  fee  simple,  for  the  purposes  contemplated 
by  this  Act.  It  is  hereby  made  the  duty  of  the  trustees  of  schools  of 
said  township  to  execute  and  deliver  to  said  Board  of  Education,  all  con- 
veyances requisite  to  perfect,  in  said  Board  of  Education,  the  title  to  all 
real  estate  now  held  in  trust  by  said  trustees  for  said  high  school  district 
of  Princeton. 

SEC.  17.  The  said  Board  of  Education  shall  have  the  power,  and  is 
hereby  directed,  to  ratify,  assume  and  carry  out  all  contracts  made  and 
entered  into  by  said  directors,  on  behalf  of  said  district,  for  building  and 
other  school  objects,  and,  for  the  purpose  of  executing  such  contracts, 
shall  levy  taxes  and  issue  bonds  as  provided  in  this  Act. 

SEC.  18.  Nothing  in  this  Act  shall  be  construed  as  affecting  the 
present  organization  of  the  common  school  districts  in  said  township,  or 
the  control  and  conduct  of  the  same  under  the  general  laws  of  this 
State. 

SEC.  19.  This  Act  shall  be  deemed  a  public  Act,  and  shall  be  in 
force  from  and  after  its  passage. 

APPROVED  February  5,  1867. 


269 


APPENDICES. 


APPENDIX  B. 


THE  GENERAL  TOWNSHIP  HIGH  SCHOOL  LAW. 

The  general  township  high  school  law  was  first  passed  by  the  Gen- 
eral Assembly  in  1872,  and  has  been  in  successful  operation  for  a 
quarter  of  a  century.  From  time  to  time  the  law  was  modified  as 
necessity  seemed  to  indicate.  It  was  incorporated  in  the  codification  oi 
the  school  law  which  was  enacted  in  1909.  After  this  date  it  was  fur- 
ther changed  by  amendment  in  relatively  unimportant  ways  until  1917, 
when  far  reaching  amendments  were  enacted  which  were  designed  to 
develope  real  community  high  schools  on  the  township  high  school  plan. 
The  law  as  amended  in  1917  is  given  in  Appendix  E.  The  law  as  it 
stood  just  preceding  this  last  far  reaching  amendment  is  given  below. 
In  this  form  it  comprises  Sections  85  to  97  inclusive  of  the  School  Law 
as  amended  by  the  Forty-ninth  General  Assembly. 

SEC.  85.  Upon  petition  of  fifty  or  more  legal  voters  of  any  school 
township,  filed  with  the  treasurer  at  least  fifteen  days  preceding  the  reg- 
ular election  of  trustees,  it  shall  be  the  duty  of  the  treasurer  to'  give 
notice  of  an  election  to  be  held  at  the  next  regular  election  of  trustees 
for  the  purpose  of  voting  "for"  or  "against"  the  proposition  to  establish 
a  township  high  school.  Notices  of  such  election  shall  be  posted  in  at 
least  ten  of  the  most  public  places  throughout  the  township,  for  at  least 
ten  days  .before  the  day  of  such  regular  election,  and  may  be  in  the 
following  form : 

NOTICE  OF  ELECTION". 

Notice  is  hereby  given  that  on  Saturday,  the day  of  April, 

1 ,  an  election  will  be  held  at '  for 

the  purpose  of  voting  "for"  or  "against"  the  proposition  to  establish  a 

township  high  school  for  the  benefit  of  township  number range 

number -. .     The  polls  will  be  opened  at o'clock  .  . .  .M. 

A B 

Township  Treasurer. 

The  trustees  of  schools  shall  conduct  the  election,  convass  and  de- 
clare the  result.  The  ballots  shall  be  in  substantially  the  following  form, 
to-wit : 


For  the  establishment  of  a  township  high  school 

Against  the  establishment  of  a  township  high  school 

270 

The  voter  shall  make  an  X  or  cross  mark  in  the  square  following 
and  opposite  the  proposition  favored,  and  the  ballot  shall  be  so  counted. 
(As  amended  by  an  Act  approved  June  6,  1911.) 

SEC.  86.  If  a  majority  of  the  votes  cast  shall  be  in  favor  of  estab- 
lishing a  township  high  school,  it  shall  be  the  duty  of  the  trustees  of 
schools  to  call  a  special  election  on  any  Saturday  within  sixty  days,  for 
the  purpose  of  electing  a  township  high  school  board  of  education,  to  con- 
sist of 'five  members,  notice  of  which  election  shall  be  given  for  the  same 
time  and  in  the  same  manner  as  provided  in  the  election  of  trustees  of 
schools.  The  members  elected  shall  determine  by  lot,  at  their  first  meet- 
ing, the  length  of  term  each  is  to  serve.  Two  of  the  members  shall 
serve  for  one  year,  two  for  two  years,  and  one  for  three  years  from  the 
second  Saturday  of  April  next  preceding  their  election.  At  the  expira- 
tion of  the  term  of  office  of  any  member  or  members,  a  successor  or 
successors  shall  be  elected,  each  of  whom  shall  serve  for  three  years, 
which  subsequent  election  shall  be  held  on  the  same  day  and  in  the  same 
manner  as  the  election  of  trustees  of  schools.  In  case  of  a  vacancy,  the 
board  shall  call  an  election  without  delay,  to  be  held  on  any  Saturday. 
Within  ten  days  after  their  election  the  members  of  the  township  high 
school  board  of  education  shall  meet  and  organize  by  electing  one  of 
their  number  president,  and  by  electing  a  secretary.  It  shall  be  the 
duty  of  such  high  school  board  of  education  to  establish,  at  some  central 
point  convenient  to  a  majority  of  the  pupils  of  the  to\vnship,  a  high 
school  for  the  education  of  the  more  advanced  pupils. 

SEC.  87.  Two  or  more  adjoining  townships,  or  two  or  more  adjoin- 
ing school  districts,  whether  in  the  same  or  different  townships,  ma}r, 
upon  petition  of  at  least  fifty  legal  voters  in  each  of  the  townships  or 
school  districts,  or  if  a  school  district  contains  fewer  than  150  voters, 
then  by  at  least  one-third  of  the  legal  voters  of  such  district,  and  upon  an 
affirmative  vote  in  each  of  such  townships  or  districts,  at  an  election  heir"1 
pursuant  to  the  provisions  of  section  85  of  this  Act,  establish  and  main- 
tain in  the  manner  provided  for  township  high  schools,  a  high  school 
for  the  benefit  of  the  inhabitants  of  the  territory  described  in  such 
petition. 

SEC.  88.  The  inhabitants  of  any  territory  composed  of  parts  of  ad- 
joining townships,  who  are  now  maintaining  a  high  school  and  who  have 
elected  a  board  of  education,  may  create  such  territory  into  a  high  school 
district  by  a  petition  signed  by  fifty  legal  voters  of  such  district  and  an 
affirmative  vote  in  such  district,  and  may  elect  a  board  of  education 
therefor,  as  in  other  high  school  districts.  When  part  of  a  township  has 
been  included  in  a  high  school  district  pursuant  to  any  of  the  provisions 
of  this  Act,  the  -remainder  of  such  township  not  included  in  any  high 
school  district,  shall  constitute  a  township  for  high  school  purposes. 

SEC.  89.  Any  school  district  having  a  population  of  two  thousand 
(2,000)  inhabitants  or  more  may,  in  the  manner  herein  provided  for 
establishing  and  maintaining  a  township  high  school,  establish  and  main- 
tain a  high  school  for  the  benefit  of  the  inhabitants  of  such  school  dis- 
trict, and  elect  a  board  of  ecfucation  therefor  with  the  same  powers  con- 
ferred on  township  high  school  boards  of  education.  The  territory  of 


271 

such  district  when  so  organized  for  high  school  purposes  shall  constitute 
a  high  school  district  for  high  school  purposes  distinct  and  separate  from 
the  common  school  district  having  the  same  boundaries,  and  the  high 
school  board  of  education  of  such  high  school  district  shall  have  the 
same  power  to  levy  taxes  and  establish  and  maintain  high  schools  as 
township  high  school  boards  of  education  organized  under  this'  Act 
possess,  and  such  taxes  shall  be  in  addition  to  the  taxes  authorized  to  be 
levied  by  section  189  of  this  Act.  All  school  districts  which  have  here- 
tofore organized  under  this  section,  elected  a  high  school  board  of  educa- 
tion, and  are  maintaining  a  high  school,  shall  be  regarded  as  high  school 
districts  distinct  and  separate  from  the  common  school  district  having 
the  same  boundaries,  shall  have  the  same  power  of  taxation  as  town- 
ship high  school  boards  of  education  organized  under  this  Act.  A  town- 
ship or  part  of  a  township  in  which  there  is  no  township  high  school 
may  be  annexed  to  an  adjacent  high  school  district  organized  under  this 
section  in  the  same  manner  as  near  as  may  be  as  is  provided  in  sections 
94,  95  and  96  of  this  Act  for  the  annexation  of  territory  to  a  township 
in  which  a  high  school  has  been  established. 

SEC.  90.  When  any  city  in  this  State  having  a  population  of  not  less 
than  one  thousand  and  not  exceeding  one  hundred  thousand  inhabitants, 
lies  within  two  or  more  townships,  that  township  in  which  a  majority  of 
the  inhabitants  of  the  city  reside  shall,  with  the  city,  constitute  under 
this  Act  a  school  township  for  high  school  purposes. 

SEC.  91.  For  the  purpose  of  building  school  houses,  supporting  the 
school  and  paying  other  necessary  expenses,  the  territory  for  the  benefit 
of  which  a  high  school  is  established  under  any  of  the  provisions  of  this 
Act,  shall  be  regarded  as  a  school  district,  and  the  board  of  education 
thereof  shall,  in  all  respects,  have  the  power  and  discharge  the  duties  of 
school  directors,  for  such  district:  Provided,  however,  That  in  all 
elections  called  under  the  provisions  of  this  Act  for  voting  on  any  one  or 
more  of  the  following  propositions,  to  wit :  To  purchase  or  locate  a 
schoolhouse  site;  to  purchase,  build  or  move  a  schoolhouse,  or  to  levy  a 
tax  to  extend  schools  beyond  nine  months,  or  to  borrow  money ;  that  said 
board  of  education  shall  have  the  power  to  establish  a  suitable  number 
of  voting  precincts  for  the  accommodation  of  voters  of  the  district  in 
which  said  election  is  held,  and  they  shall  fix  the  boundaries  of  said 
precincts,  and  designate  one  polling  place  in  each,  and  said  precincts 
shall  be  composed  of  contiguous  territory  in  as  compact  form  as  may  be 
for  the  convenience  of  the  electors  voting  therein-;  the  said  board  shall 
appoint  two  judges  and  one  clerk  for  each  polling  place,  assigning  so  far 
as  practicable,  at  least  one  member  of  such  board  to  each  polling  place. 
Xotice  of  all  such  elections  shall  be  in  the  form  now  prescribed  by  law 
and  be  posted  by  the  said  board  of  education  in  at  least  three  of  the  most 
public  places  in  each  of  said  voting  precincts  at  least  ten  days  previous 
to  the  day  of  election.  (As  amended  by  an  Act  approved  June  26,  1913.) 

Src.  92.  When  any  district  desires  to  discontinue  the  high  school, 
the  treasurer,  upon  petition  of  a  majority  of  the  legal  voters  of  the  dis- 
trict filed  at  least  fifteen  days  preceding  the  regular  election  of  trustees 
of  schools  with  the  treasurer  of  such  district,  shall  give  notice  of  an 
election  to  be  held  on  the  day  of  the  regular  election  of  trustees,  for  the 


272 

purpose  of  voting  "for"  or  "against"  the  proposition  to  discontinue  the 
township  high  school,  which  notice  shall  be  given  in  the  same  manner 
and  for  the  same  length  of  time,  and  in  substantially  the  same  form, 
as  the  notice  provided  for  in  section  85  of  this  Act.  The  ballots  for  such 
election  shall  be  canvassed  in  the  manner  provided  for  in  section  85  of 
this  Act,  If  a  majority  'of  the  votes  cast  at  such  election  shall  be  in 
favor  of  discontinuing  the  high  school,  the  trustees  of  the  school  shall 
surrender  the  assets  of  the  high  school  to  the  district  fund  of  the  town- 
ship or  townships  interested  in  proportion  of  the  assessed  valuation  of 
the  townships  or  parts  of  townships  comprising  such  district. 

SEC.  93.  When  any  township  in  any  county  under  township  organ- 
ization shall  contain  two  political  towns  divided  by  a  navigable  stream 
as  recognized  by  the  United  States,  each  of  which  shall  contain  a  city 
of  less  than  one  thousand  or  more  than  one  hundred  thousand  inhab- 
itants, each  town  shall  constitute  a  township  under  this  Act  for  high 
school  purposes. 

SEC.  94.  A  township  or  part  of  a  township  in  which  then-  is.  no 
township  high  school  may  be  annexed,  in  the  manner  hereinafter  pro- 
vided, to  an  adjacent  township  in  which  a  township  high  school  has  been 
established.  Upon  petition  of  five  per  cent  of  the  legal  voters  of  the 
territory  to  be  annexed,  and  of  the  township  to  which  annexation  is 
desired,  filed  with  the  treasurers  of  the  respective  townships  at  least 
fifteen  days  preceding  the  regular  election  of  trustees  of  schools,  the 
respective  treasurers  shall  give  notice  to  the  voters  concerned  that  an 
election  for  or  against  annexing  the  township  or  part  of  a  township,  as 
the  case  may  be,  will  be  held  at  the  next  regular  election  of  trustees  of 
schools  in  each  township,  by  posting  notices  of  such  election  in  at  least 
ten  of  the  most  public  places  in  the  territory  to  be  annexed,  and  in  the 
adjacent  township,  at  least  ten  days  before  the  date  of  such  regular 
election.  Such  notice  may  be  in  the  following  form,  to  wit : 

HIGH  SCHOOL  ANNEXATION. 

Notice  is  hereby  given  that  on  Saturday,  the clay  of 

April  1, ,  an  election  will  be  held  at 

for  the  purpose  of  voting  tf'f or"  or  "against"  the  proposition  to  annex  for 
township  high  school  purposes  the  following  territory,  to  wit :  (Here  insert 
the  number  and  range  of  the  township  when  the  whole  of  the  township 
is  to  be  annexed,  or  when  part  of  a  township  is  to  be  annexed  insert  the 

said  part  of  said  township),  to  township  number , 

range  number (Township  having  an  established 

high  school). 

The  polls  will  be  opened  at o'clock M.,  and  closed 

at o'clock M. 

A B 

Treasurer. 

When  less  than  the  whole  of  a  township  is  to  be  annexed,  only  the 
voters  in  the  territory  to  be  annexed  shall  have  the  right  to  vote,  and  the 
trustees  of  schools  shall  provide  a  voting  place  for  that  territory  and 
the  judges  and  clerks  of  such  election. 


•273 

SEC.  95.  If  petition  request  the  township  treasurers,  respectively, 
to  submit  such  question  at  a  special  election,  it  shall  be  the  duty  of  the 
township  treasurers  to  call  the  respective  elections,  as  provided  in  the 
foregoing  sections  for  some  day  and  hour  not  exceeding  thirty  days  from 
the  date  of  the  filing  of  the  petition;  and  give  at  least  ten  days'  notice 
of  the  election,  in  which  event  the  polls  of  the  election  shall  be  open  in 
at  least  two  polling  places  and  for  at  least  four  consecutive  hours,  and 
the  polling  places  in  the  respective  townships  shall  be  designated  and 
fixed  by  the  treasurers  respectively.  If  a  majority  of  the  votes  cast  in 
the  township  having  an  established  high  school,  and  a  majority  of  the 
votes  cast  in  the  territory  to  be  annexed  shall  be  in  favor  of  the  proposi- 
tion, the  township  or  territory,  as  the  case  may  be,  shall  be  and  become 
so  annexed,  and  the  property  in  such  township  or  territory  shall  there- 
after be  subject  to  taxation  for  the  support  and  maintenance  of  the 
t'ownsliip  high  school,  including  the  payment  of  any  bonded  indebtedness 
of  such  township  high  school,  and  interest  thereon,  thereafter  falling  due, 
as  fully  and  to  the  same  extent  as  is  provided  by  law  for  the  levying  of 
taxes  upon  property  for  the  support  and  maintenance  of  township  high 
schools.  The  taxes  collected  from  such  township  or  territory  annexed 
for  the  support  and  maintenance  of  a  township,  high  school  shall  be  paid 
by  the  officer  collecting  the  same  to  the  township  treasurer  of  the  town- 
ship having  the  established  high  school. 

SKC.  96.  Such  election  shall  be  held  in  the  manner  provided  by  law 
for  the  holding  of  elections  for  township  trustees  of  schools,  and  the 
ballots  of  sucn  election  shall  be  canvassed,  and  the  returns  thereof  made 
as  in  other  school  elections.  If  a  majority  of  the  votes  cast  shall  be  in 
favor  of  the  proposition,  it  shall  be  the  duty  of  the  township  treasurer  of 
the  township  which  is  annexed,  or  part  thereof,  as  the  case  may  be,  to 
file  a  certificate  with  the  county  clerk  of  the  county  in  which  such  town- 
ship is  located,  or  if  such  township  is  located  in  more  than  one  county, 
with  the  respective  clerks  of  such  counties,  certifying  to  the  territory  so 
annexed  and  giving  a  description  thereof. 

S  !•;<•.  97.  Upon  a  petition  of  not  less  than  fifty  voters  of  any  high 
school  district,  filed  with  the  township  treasurer  at  least  fifteen  days 
preceding  the  regular  election  of  members  of  the  board  of  education  for 
such  high  school  district,  it  shall  be  the  duty  of»the  treasurer  to  notify 
the  voters  of  such  district  that  an  election  "for"  or  "against"  the  estab- 
lishment of  a  manual  training  department  for  such  high  school  will 
be  held  at  the  next  annual  election  of  the  board  of  education  by  posting 
notices  of  such  election  in  at  least  ten  of  the  most  public  places  through- 
out the  township  for  at  least  ten  days  before  the  day  of  such  regular 
election,  which  notice  may  be  in  the  following  form,  to  wit: 

HIGH   SCHOOL  ELECTION. 

Xotice  is  hereby  given  that  on  Saturday,  the day  of  April, 

1 ,  an  election  will  be  held  at  the 

for  the  purpose  of  voting  "for"  or  "against"  the  proposition  to  establish 
a  manual  training  department  for  the  high  school  in  township  Xo , 

—18  I  H  S 


274 

range  No The  polls  will  be  opened  at o' clock.  .  .  .  M., 

and  closed  at. .        .  .o'clock.  ,  .  .M. 


Township  Treasurer. 

The  ballots  for  such  election  shall  be  canvassed  as  in  other  elections, 
and  may  have  on  them  the  names  of  the  persons  voted  for  at  such  elec- 
tion. If  a  majority  of  the  votes  cast  shall  be  in  favor  of  establishing  a 
manual  training  department  for  the  high  school  in  such  district,  it  shall 
be  the  duty  of  the  board  of  education  to  establish  and  maintain  therein 
such  department  as  a  part  of  the  high  school. 


APPENDICES. 


APPENDIX  C. 

THE  TOWNSHIP  HIGH  SCHOOL  LAW  OF  1905. 

This  law  in  no  sense  contravenes  the  general  township  high  school 
law  but  provides  another  method  of  organizing  township  high  schools. 

AN  ACT  to  Authorize  the  Organization  of  High  School  Districts. 

SECTION  1.  Be  it  enacted  by  the  People  of  the  State  of  Illinois  rep- 
resented in  the  General  Assembly,  When  any  school  township  not  con- 
stituting the  whole  or  any  part  of  a  township  high  school  district  shall 
contain  a  school  district  having  a  population  of  not  less  than  eight 
thousand  (8,000)  and  not  over  one  hundred  thousand  (100,000)  in- 
habitants, whether  such  school  district  is  acting  under  the  general  school 
law  or  organized  and  acting  under  a  special  charter,  such  school  town- 
ship may  become  organized  as  a  high  school  district  by  submitting  the 
question  of  such  organization  to  a  vote  of  the  people  of  such  township  at 
a  special  election  to  be  called  and  held  in  the  following  manner,  to  wit : 
Upon  a  petition  of  not  less  than  fifty  (50)  legal  voters  of  any  such 
school  township,  filed  with  the  county  superintendent  of  schools  of  the 
county  wherein  such  township  or  the  greater  part  thereof  may  be  sit- 
uated, he  shall  within  ten  days  thereafter  notify  the  voters  of  said  town- 
ship that  an  election  "for"  or  "against"  a  high  school  district  in  said 
township  will  be  held  at  the  usual  place  or  places  of  holding  elections 
in  said  township  for  the  election  of  trustees  of  schools,  by  posting  notices 
of  such  election  in  at  least  ten  of  the  most  public  places  throughout  such 
township  for  at  least  ten  days  before  the  election,  which  notices  may  be 
in  the  following  form : 

HIGH  SCHOOL  DISTRICT  ELECTION. 

Notice  is  hereby  given  that  on , the 

day  of A.  D ,  an  elec- 
tion will  be  held  at for  the  purpose  of  voting 

"for"  or  "against"  the  proposition  to  establish  a  high  school  district  in 
and  for  the  benefit  of  township  No ,  Range  No 

The  polls  of  said  election  will  be  open  at o'clock  and  close 

at o'clock  of  said  day. 


County  Superintendent  of  Schools  of County. 

Such  election  shall  be  held  within  twenty  days  after  the  filing  of 
said  petition  and  shall  be  conducted  and  the  ballots  cast  thereat  shall 
be  canvassed  and  the  returns  thereof  made  to  said  county  superintendent 


of  schools  as  and  within  the  time  and  the  manner  provided  for  election 
of  school  trustees  in  and  by  article  three  (3)  of  "An  Act  of  the  General 
Assembly  of  the  State  of  Illinois,  entitled,  'An  Act  to  establish  and  main- 
tain a  system  of  free  schools/"  approved  May  21,  1889,  and  the  amend- 
ments thereto,  and  if  a  majority  of  the  votes  cast  at  such  election  shall 
be  found  to  be  in  favor  of  a  high  school  district  such  township  shall 
constitute  a  school  district  under  this  Act  for  high  school  purposes. 

SEC.  2.  The  members  of  the  board  of  education  of  such  school  dis- 
trict so  containing  not  less  than  eight  thousand  (8,000)  inhabitants  to- 
gether with  such  additional  members  to  be  selected  from  the  respective 
boards  of  directors  or  boards  of  education,  as  the  case  may  be,  of  the 
several  other  school  districts  situated  within  such  school  township  as 
may  be  determined  upon,  shall  constitute  the  board  of  education  of  such 
high  school  district,  and  such  board,  when  chosen,  organized  and  qual- 
ified, shall  have  the  powers  and  discharge  the  duties  respectively  of  the 
board  of  education  of  said  school  district  in  such  township  having  over 
eight  thousand  (8,000)  inhabitants. 

SEC.  3.  The  county  superintendent  of  schools  of  the  county  wherein 
such  township  or  the  greater  part  thereof  shall  be  situated,  shall  within 
ten  days  after  the  returns  of  such  election  shall  have  been  made  to  him, 
determine  the  number  of  members  of  the  board  of  education  of  such 
high  school  district  to  be  chosen  from  the  respective  boards  of  the  several 
school  districts  in  such  school  township  in  the  following  manner,  to  wit : 
He  shall  first  obtain  a  ratio  of  representation  by  dividing  the  number  of 
persons  under  twenty-one  years  of  age  residing  in  such  school  district 
containing  over  eight  thousand  (8,000)  inhabitants  as  ascertained  by 
the  last  preceding  enumeration,  by  the  full  number  of  members  consti- 
tuting the  board  of  education  thereof  and  then  assign  to  each  of  the 
other  districts  in  such  township  one  member  of  such  board  for  each  time 
such  ratio  may  be  contained  in  the  respective  number  of  such  persons 
under  the  age  of  twenty-one  years  residing  in  each  of  such  other  districts 
as  ascertained  as  aforesaid:  Provided,  however,  that  in  case  the  total 
number  of  such  members  determined  in  the  manner  aforesaid  shall  ex- 
ceed fifteen,  then  the  said  superintendent  shall  divide  the  entire  number 
of  such  persons  under  the  age  of  twenty-one  years  residing  in  such  town- 
ship by  fifteen  (15)  and  thereby  obtain  a  new  ratio  and  then  make  an 
apportionment  between  all  the  primary  school  districts  in  such  school 
township,  upon  the  basis  of  such  new  ratio,  assigning  one  member  for 
every  time  such  ratio  shall  be  contained  in  the  number  of  such  persons 
residing  in  each  of  such  districts  respectively,  and  one  member  for  the 
largest  fractions  of  such  ratio,  if  necessary,  to  make  the  total  number 
equal  to  fifteen,  and  within  three  days  thereafter  said  superintendent 
shall  notify  the  president  of  each  of  the  said  boards  of  said  primary 
school  districts  of  the  result  of  such  apportionment  and  that  said  boards 
must  make  a  selection  of  the  number  of  members  of  said  high  school 
board  of  education,  each  of  their  respective  school  districts  shall  be  en- 
titled to.  When  ten  days  after  such  notice  shall  have  been  given,  the 
said  respective  boards  of  the  primary  school  districts  in  such  township 
shall  meet  upon  a  call  of  the  'president  thereof  and  elect  by  ballot  the 
number  of  members  of  such  high  school  district,  such  primary  school 


districts  may  be  entitled  to  respectively,  and  the  president  and  secretary 
of  said  boards  shall  certify  the  result  of  such  election  in  writing  to  the 
said  county  superintendent  within  three  days  thereafter,  and  thereupon 
the  said  county  superintendent  shall  appoint  a  meeting  of  the  several 
persons  so  chosen,  for  the  purpose  of  organization,  and  give  each  person 
so  chosen,  notice  by  mail  postpaid  of  such  meeting  and  the  time  and  place 
thereof. 

SEC.  4.  Said  board  shall  organize  by  appointing  one  of  their  num- 
ber president  and  some  person  who  shall  not  be  a  member  of  such  board 
but  who  shall  be  a  resident  of  such  high  school  district,  treasurer,  who 
shall  be  ex  officio  clerk  of  such  board :  Provided,  that  this  board  may,  by 
a  resolution  to  be  adopted  by  a  two-thirds  vote  of  all  the  members 
thereof,  determine  to  elect  one  of  its  own  members  secretary  and  fix  his 
compensation  and  the  term  of  fris  office,  and  by  a  like  resolution,  said 
board  shall  determine  when  the  term  of  office  of  the  president  and  treas- 
urer shall  commence.  The  treasurer  shall  execute  a  like  bond  to  the 
board  of  education  in  the  same  manner  with  like  sureties  and  with  the 
same  force  and  effect  as  the  bonds  which  are  required  to  be  given  bty 
township  treasurers  in  and  by  article  four  (4)  of  said  Act,  and  shall 
exercise  the  power  and  discharge  the  duties  of  his  office  in  the  same  man- 
ner, as  near  as  may  be,  as  is  required  by  such  township  treasurers  and 
shall  hold  his  office  for  one  year  and  until  his  successor  is  appointed  and 
qualified,  but  may  be  removed  by  the  board  for  good  and  sufficient  cause. 
SEC.  5.  The  president  shall  hold  his  office  for  one  year  and  until 
his  successor  shall  be  appointed,  but  he  may  be  removed  by  the  board  for 
good  and  sufficient  cause.  It  shall  be  his  duty  to  preside  at  all  meetings 
of  the  board  and  it  shall  be  the  duty  of  the  clerk  to  be  present  at  all 
meetings  of  the  board,  and  to  record  in  a  book  to  be  provided  for  that 
purpose  all  of  their  official  proceedings,  which  book  shall  be  a  public 
record,  open  to  the  inspection  of  any  person  interested  therein.  All  of 
said  proceedings  when  recorded  shall  be  signed  by  the  clerk.  If  the  pres- 
ident or  the  clerk  shall  be  absent  or  refuse  to  perform  any  of  the  duties 
of  his  office  at  any  meeting  of  the  board,  a  president  or  clerk  pro  tern  may 
be  appointed. 

SEC.  6.  For  the  purpose  of  building  school  houses,  supporting 
schools  and  paying  other  necessary  expenses,  the  townships  for  the  bene- 
fit of  which  a  high  school  district  may  be  established  under  the  provisions 
of  this  Act,  shall  be  regarded  as  school  districts  and  the  board  of  edu- 
cation thereof  shall  have  power  and  authority  to  levy  a  tax  annually 
upon  all  the  taxable  property  of  such  high  school  district  of  one-half 
the  amount  which  boards  of  education  of  township  high  schools  organ- 
ized and  acting  under  the  provisions  of  sections  38,  39,  40,  41  and  42 
of  article  three  (3)  of  said  Act,  now  have  power  and  authority  to  raise. 
It  shall  be  the  duty  of  such  high  school  board  of  education  to  establish 
at  some  central  point  most  convenient  to  a  majority  of  the  pupils  of  the 
district,  a  high  school  for  the  education  of  the  more  advanced  pupils  and 
said  board  may  establish  and  maintain  a  manual  training  department 
and  a  domestic  science  department. 

SEC.  7.  High  school  districts  organized  under  the  provisions  of  this 
Act  may  borrow  money  and  issue  bonds  therefor  for  the  purposes  and  in 


278 

the  manner  authorized  and  provided  in  and  by  an  Act  entitled,.  "An  Act 
to  authorize  the  certain  school  districts  to  issue  bonds  for  certain  pur- 
poses/' approved  May  10,  1901 :  Provided,  however,  that  the  amount  so 
borrowed  shall  not  exceed  three-fourths  the  amount  authorized  by  said 
Act, 

SEC.  8.  One  or  more  school  districts  adjoining  any  high  school  dis- 
trict organized  and  existing  under  this  Act  may  be  annexed  to  such  high 
school  district  and  become  a  part  thereof  by  a  joint  resolution  or  resolu- 
tions to  be  adopted  by  a  vote  of  a  majority  of  all  the  members  of  the 
board  of  directors  or  board  of  education  of  the  district  or  districts  so  to 
bo  annexed,  and  by  a  majority  vote  of  all  the  members  constituting  the 
said  board  of  education  of  such  high  school  district,  which  joint  resolu- 
tion or  resolutions  shall  set  forth  specifically  the  terms  and  conditions  of 
such  annexation,  and  shall  provide  that  such  district  or  districts  so  to 
be  annexed  shall  contribute  such  amount  as  may  be  agreed  upon  toward 
the  cost  of  any  school  house  or  school  house  lot  or  other  such  school 
property  owned  by  such  high  school  district  at  the  time  of  the  annexa- 
tion, which  amount  or  amounts  so  agreed  upon  and  fixed,  shall  be  raised 
by  the  respective  boards  of  the  district  or  districts  so  being  annexed  in 
the  same  manner  as  such  district  might  have  raised  a  like  amount  for  the 
purpose  of  building  school  houses  therein,  and  when  so  raised,  the  same 
shall  be  used  to  pay  any  existing  indebtedness  theretofore  incurred  by 
such  high  school  district,  in  the  manner  to  be  determined  upon  by  said 
board:  Provided,  however,  that  before  any  such  resolution  for  the  an- 
nexation of  any  such  district  or  districts  shall  take  effect  and  be  in 
force,  the  question  of  the  adoption  of  the  same  shall  be  submitted  to  the 
legal  voters  of  such  said  high  school  district  and  of  the  districts  pro- 
posed to  be  annexed  at  elections  to  be  called  and  held  in  the  same  manner 
as  elections  for  township  high  schools  under  sections  38,  39  and  40  of 
article  three  (3)  of  the  act  mentioned  in  the  first  section  of  this  act, 
and  a  majority  of  the  votes  cast  in  each  district  at  such  elections  shall 
be  required  in  order  to  adopt  such  resolution. 

APPKOVED  May  12,  1905. 


APPENDICES. 


APPENDIX   D. 

The  township  high  school  law  of  1911  sought  to  make  easier  the  or- 
ganization of  community  high  schools.  Section  six  is  the  significant  part 
of  this  law. 

AN  ACT  to  Authorize  the  Organization  of  High  School  Districts. 

SECTION  1.  Be  it  enacted  ly  the  People  of  the  State  of  Illinois,  rep- 
resented in  the  General  Assembly,  That  any  school  township  that  con- 
tains a  school  district  having  a  population  of  1,000  or  more  and  not  ex- 
ceeding 100,000  inhabitants,  whether  operating  under  the  general  school 
law  or  governed  by  virtue  of  a  special  Act,  may  be  organized  into  a  high 
school  district  by  submitting  the  proposition  to  a  vote  of  the  people  at  a 
general  or  special  election. 

SEC.  2.  Upon  the  receipt  of  a  petition  signed  by  fifty  or  more  legal 
voters,  the  county  superintendent  of  schools  of  the  county  in  which  the 
township  or  the  greater  part  of  the  territory  described  in  the  petition  is 
situated,  shall  forthwith  order  an  election  to  be  held  for  the  purpose  of 
voting  "for"  or  "against"  the  proposition  to  establish  a  township  high 
school,  by  posting  notices  for  at  least  ten  days  in  ten  of  the  most  public 
places  throughout  the  township  or  territory,  which  notices  may  be  sub- 
stantially as  follows: 

NOTICE   OF   ELECTION. 

Xotice  is  hereby  given  that  on the 

day  of ,1 ,  an  election  will  be  held  at 

.  . . for  the  purpose  of  voting  "for"  or 

"against"  the  proposition  to  establish  a  township  high  school  for  the 

benefit  of  the  inhabitants  of  township  (or  territory) 

The  polls  will  be  opened  at o'clock m.,  and  closed 

o'clock m. 

A B 

County  Superintendent. 

In  townships  divided  equally  by  county  lines,  the  elections  shall  be 
in  charge  of  the  superintendent  of  schools  of  the  county  in  which  the 
sixteenth  section  is  situate. 

SEC.  3.  The  elections  required  by  this  Act  shall  be  conducted  by  the 
trustees  of  schools,  boards  of  education  or  boards  of  directors,  designated 
by  the  county  superintendent  of  schools,  to  whom  all  returns  shall  be 
made  within  five  days.  The  ballots  shall  be  in  substantially  the  follow- 
ing form,  to  wit : 


280 


For  the  establishment  of  a  township  high  school 

Against  the  establishment  of  a  township  high  school 

The  voter  shall  make  an  X  or  cross-mark  in  the  square  following  and 
opposite  the  proposition  favored,  and  the  ballot  shall  be  so  counted. 

SEC.  4.  If  a  majority  of  the  votes  cast  shall  be  in  favor  of  establish- 
ing a  township  high  school,  the  count}'  superintendent  of  schools  shall 
forthwith  order  an  election  to  be  held  within  thirty  days,  for  the  purpose 
of  selecting  a  township  high  school  board  of  education,  to  consist  of  a 
president  and  six  members,  by  posting  notices  for  at  least  ten  days  in  ten 
of  the  most  public  places  throughout  the  township  or  territory,  whicri 
notices  may  be  substantially  as  follows : 

NOTICE    OF    ELKCTIOX. 

Notice  is  hereby  given  that  on ,  the 

day  of ,  an  election  will  be  held  at 

for  the  purpose  of  electing  a 

township  high  school  board  of  education,  to  consist  of  a  president  and 

six  members.     The  polls  will  be  opened  at o'clock m.,  and 

closed  at o'clock m. 

A - B 

County  Superintendent. 

Two  of  the  members  shall  be  elected  for  one  year,  two  for  two  years, 
and  two  for  three  years,  and  each  year  thereafter  two  members  shall  be 
elected  to  serve  for  three  years.  The  president  shall  be  elected  annually. 
All  subsequent  elections  shall  be  held  on  the  second  Saturday  of  April, 
annually. 

SEC.  5.  For  the  purpose  of  supporting  a  high  school,  the  township 
or  territory  for  the  benefit  of  which  a  high  school  is  established  under 
the  provisions  of  this  Act,  shall  be  regarded  as  a  school  district,  and  the 
board  of  education  thereof  shall,  in  all  respects,  have  the  powers  and  dis- 
charge the  duties  of  boards  of  education  elected  under  the  general 
school  law. 

SEC.  6.  The  inhabitants  of  any  contiguous  and  compact  territory, 
whether  in  the  same  or  different  townships,  upon  a  petition  signed  by 
at  least  fifty  legal  voters  and  an  affirmative  vote  in  such  territory,  may 
establish,  in  the  manner  provided  by  this  Act,  a  township  high  school 
for  the  benefit  of  the  inhabitants  of  the  territory  described  in  the  petition. 

SEC.  7.  A  school  district  or  any  part  thereof,  adjoining  a  high  school 
district  organized  pursuant  to  this  Act,  may  be  annexed  to  such  high 
school  district  and  become  a  part  thereof,  by  a  concurrent  resolution 
adopted  by  the  boards  in  each  district.  Before  the  resolution  shall  take 
effect,  however,  the  proposition  shall  be  submitted,  under  the  provisions 
of  this  Act,  to  a  vote  of  the  people  of  the  territory  desiring  annexation, 
and  a  majority  of  the  votes  cast  shall  be  required  in  order  to  adopt  such 
resolution. 


SEC.  8.  When  any  entire  high  school  district  desires  to  discontinue 
the  township  high  school,  the  county  superintendent.,  upon  the  receipt  of 
a  petition  signed  by  a  majority  of  the  legal  voters  of  the  said  district, 
shall,  forthwith,  order  an  election  to  be  held  in  the  manner  provided  by 
this  Act.  for  the  purpose  of  voting  "for"  or  "against"  the  proposition  to 
discontinue  the  township  high  school.  If  two-thirds  of  the  ballots  cast 
at  the  election  shall  be  in  favor  of  .discontinuing  the  township  high 
school.,  the  county  superintendent  shall  direct  the  high  school  board  of 
education  to  discharge  all  outstanding  obligations  and  to  distribute  the 
remainder  of  the  assets  of  the  high  school  district  to  the  underlying 
districts  and  parts  of  districts  in  proportion  to  the  assessed  valuation  of 
all  the  property  of  such  districts  and  parts  of  districts :  Provided,  that 
an  election  to  discontinue  the  township  high  school  shall  not  be  called 
within  the  period  of  two  years  from  the  establishment  of  such  township 
high  school,  nor  within  a  period  of  two  years  following  any  such  election 
called  to  discontinue  the  township  high  school.  When  a  township  high 
school  shall  be  discontinued  by  an  order  of  any  court  of  competent  juris- 
diction, the  assets  of  the  high  school  district  shall  he  distributed  in  the 
manner  provided  by  this  section.  (Added  by  an  Act  approved  June 
26,  1915.) 

Ai'i'KOVKD  June  5,   1911. 


APPENDICES. 


APPENDIX  E. 


THE  GENERAL  TOWNSHIP  HIGH  SCHOOL  LAAV  J  X  ITS 
AMENDED  FOKM. 

Below  is  given  the  text  of  the  General  Township  High  School  Law 
as  amended  by  the  Fiftieth  General  Assembly  in  1917,  after  this  study 
was  completed  and  in  the  press.  In  this  text  sections  85  to  87,  inclusive, 
and  also  section  97,  are  omitted  as  they  were  not  amended.  For  these 
sections,  see  Appendix  B.  Sections  85  to  97,  inclusive,  constitute  the 
General  Township  High  School  Law.  An  opportunity  at  the  last  moment 
is  offered  to  include  the  law  referred  to  in  this  publication. 

In  the  fall  of  1916  the  educational  interests  of  the  State  were  thrown 
into  confusion  by  two  far  reaching  decisions  of  the  State  Supreme  Court. 
One  of  these  pertained  to  the  payment  of  the  tuition  of  high  school  pupils 
living  in  school  districts  which  do  not  maintain  high  schools.  A  law 
approved  in  1913  had  provided  that  the  school  districts  should  pay  the 
tuition.  In  1915  this  law  was  repealed  by  the  passage  of  another  which 
provided  that  the  tuition  should  be  paid  by  the  county  superintendent  out 
of  the  Distributable  Fund  before  this  fund  was  apportioned  to  the 
various  school  districts.  The  Township  High  School  Law  as  amended 
in  1917  provides  that  all  the  non-high  school  territory  in  each  county 
shall  be  organized  into  a  non-high  school  district  the  function  of  which  i^ 
to  pay  this  tuition.  The  provisions  regarding  this  non-high  school  di~- 
trict  are  enumerated  in  sections  93  to  96  of  the  law  as  printed  below. 

The  other  decision  referred  to  invalidated  the  Township  High 
School  Law  of  1911.  It  was  the  purpose  of  the  law  of  1911  to  permit 
the  organization  of  community  high  schools  based  upon  compact  and 
contiguous  territory  without  adequate  limitations  of  political  boundaries. 
The  educational  development  of  the  State  imperatively  demanded  some 
such  legislation.  As  stated  above,  however,  this  law  was  found  by  the 
Supreme  Court  to  be  drawn  in  unconstitutional  form. 

The  Township  High  School  Law,  however,  as  amended  in  1917, 
accomplishes  the  purposes  aimed  at  in  the  law  of  1911  much  more 
effectively.  By  the  provisions  of  this  amended  law  the  entire  State 
becomes  high  school  territory,  either  in  the  form  of  high  school  districts 
maintaining  high  schools  or  in  the  form  of  non-high  school  districts 
paying  the  tuition  of  high  school  pupils  resident  in  them. 

Moreover,  this  law  provides  for  the  formation  of  community  high 
schools  based  upon  compact  and  contiguous  territory.  In  addition  to 
that,  it  provides  for  their  organization  on  well  defined  and  just  princi- 
ples. In  this  study  it  has  been  found  that  high  schools  perform  their 


283 

function  better  if  (1)  their  territorial  basis  is  adequate  in  extent  to 
provide  funds;  (2)  if  there  are  sufficient  prospective  high  school  students 
to  provide  an  efficient  school;  and  (3)  if  all  parts  of  the  proposed  dis- 
trict is  accessible.  These  requirements  are  all  incorporated  in  the  law. 

In  Chapter  II  on  the  constitution  of  the  township  high  school  it  was 
shown  that  there  were  eight  different  classes  of  township  high  schools 
which  might  be  formed  depending  on  the  nature  of  the  territorial  units 
out  of  which  they  were  formed.  Six  of  these  classes  are  included  in  this 
revision  without  change  in  language.  Two  of  these — (1)  the  remainder 
of  a  township  after  a  township  high  school  has  been  organized,  and  (2) 
any  school  district — are  omitted.  These  two  are  omitted  for  the  obvious 
reason -that  they  come  under  the  provision  for  the  organization  of  com- 
pact and  contiguous  territory  into  a  community  high  school  district. 

The  law  as  revised  is  given  below  with  the  exception  that  sections 
85  to  87,  inclusive,  and  also  section  97,  are  not  included  here  since  they 
were  in  no  way  amended.  For  these  sections  see  Appendix  B.  The 
extent  of  the  changes  made  in  the  law  may  be  learned  by  reading 
Appendix  A  in  comparison  with  Appendix  E. 

AN  ACT  to  amend  sections  88,  89,  90,  91,  92,  93,  94,  95  and  96  of  an 
act  entitled,  "An  Act  to  establish  and  maintain  a  system  of  free 
schools,"  approved  and  in  force  June  '12,  1909,  as  subsequently 
amended,  and  to  repeal  conflicting  statutes. 

SECTION"  1.  Be  it  enacted  "by  the  People  of  the  State  of  Illinois, 
represented  in  the  General  Assembly :  That  sections  88,  8-9,  90,  91,  92, 
93,  94,  95  and  96  of  an  act  entitled,  "An  Act  to  establish  and  maintain 
a  system  of  free  schools,"  approved  and  in  force  June  12,  1909,  as  sub- 
sequently amended,  be  amended  so  that  said  sections  shall  read  as  fol- 
lows: 

SEC.  88.  The  inhabitants  of  any  territory  composed  of  parts  of 
adjoining  townships  or  of  a  congressional  township  and  parts  of  one  or 
more  adjoining  townships  may  create  such  territory  into  a  high  school 
district  by  a  petition  signed  by  at  least  50  legal  voters  and  an  affirma- 
tive vote  in  such  territory,  and  may  elect  a  board  of  education  therefor, 
as  in  other  high  school  districts.  When  part  of  a  township  has  been 
included  in  any  high  school  district  pursuant  to  any  of  the  provisions 
of  this  act,  the  remainder  of  such  township,  not  included  in  any  high 
school  district,  shall  constitute  a  township  for  high  school  purposes. 

When  any  city  in  this  State  having  a  population  of  not  less  than 
one  thousand  and  not  exceeding  one  hundred  thousand  inhabitants  lies 
within  two  or  more  townships,  that  township  in  which  a  majority  of 
the  inhabitants  of  the  city  reside  shall,  with  the  city,  constitute  under 
this  act  a  school  township  for  high  school  purposes. 

When  any  township  in  any  county  under  township  organization  shall 
contain  two  political  towns  divided  by  an  unbridged  navigable  stream  as 
recognized  by  the  United  States,  each  of  which  shall  contain  a  city  of  not 
less  than  one  thousand  nor  more  than  one  hundred  thousand  inhabitants, 
each  town  shall  constitute  a  township  under  this  act  for  high  school 
purposes. 

SEC.  89.  Upon  the  receipt  of  a  petition  signed  by  fifty  or  more  legal 
voters  residing"  in  any  compact  and  contiguous  territory  described  in 


284 

said  petition,  whether  in  the  same  or  different  townships,  the  county 
superintendent  of  schools  of  the  county  in  which  the  territory  or  the 
greater  part  thereof  described  in  the  petition  is  situated,  shall  order  an 
election  to  be  held  for  the  purpose  of  voting  "for"  or  "against"  the 
proposition  to  establish  a  community  high  school,  by  posting  notices 
for  at  least  ten  days  in  ten  of  the  most  public  places  throughout  the 
territory  described  in  the  petition,  which  notices  may  be  substantially 
in  the  following  form  : 

NOTICE  OF  ELECTION. 

Notice  is  hereby  given  that  on the day  of 

,  IJ).  ....  an  election  will  be  held  at for 

the  purpose  ol'  voting  "for"  or  "against"  the  proposition  to  establish 
n  community  high  school  for  the  benefit  of  the  inhabitants  of  the  fol- 
lowing described  territory :  

The  polls  to  be  opened  at. o'clock.  .  .  .  M.,  and  closed  at 

o'clock .  . .  .  M. 

A B 

County  Superintendent. 

Said  community  high'  school  district  shall  be  formed,  as  far  as 
practicable,  about  a  community  center,  and  have  sufficient  territory, 
assessed  valuation,  and  prospective  high  school  pupils  to  form  a  satis- 
factory and  efficient  high  school,  and  it  shall  be  the  duty  of  the  county 
superintendent '  of  schools  before  calling  the  election  to  consider  the 
form,  size,  and  assessed  valuation  of  the  proposed  high  school  district 
and  the  number  of  prospective  high  school  pnpils  in  the  same,  and  if 
in  his  judgment  the  proposed  district  does  not  meet  the  requirements 
heretofore  specified  in  this  section  he  may  refer  the  petition  back  to  the 
petitioners  with  recommendations  as  to  changes  before  he  calls  the 
election,  or  he  may  deny  the  prayer  of  the  petition.  Provided,  ho-ic- 
ever,  that  in  forming  these  high  school  districts,  existing  school  districts 
shall  not  be  divided  by  high  school  district  boundaries,  except  where 
in  the  judgment  of  the  county  superintendent  of  schools  of  the  county  in 
which  the  larger  part  of  the  proposed  high  school  district  lies,  it  is  neces- 
sary in  order  to  make  a  compact  and  satisfactory  high  school  district. 

If  a  majority  of  the  votes  cast  at  said  election  shall  be  in  favor 
of  establishing  a  community  high  school,  the  county  superintendent 
shall  forthwith  order  an  election  to  be  held  within  thirty  clays  for  the 
purpose  of  electing  a  community  high  school  board  of  education  to 
consist  of  five  members.  The  members  elected  shall  determine  by  lot 
at  the  first  meeting  the  length  of  term  each  is  to  serve.  Two  of  the 
members  shall  serve  for  one  year,  two  for  two  years,  and  one  for  three 
years,  from  the  third  Saturday  of  April  next  preceding  their  election. 
At  the  expiration  of  the  term  of  office  of  any  member  or  members,  the 
successor  or  successors  shall  be  elected,  each  of  whom  shall  serve  for 
three  years,  which  subsequent  election  shall  be  held  on  the  third  Satur- 
day in  April.  The  manner  "of  holding  elections  shall  be  governed  by 
sections  126  and  136a  of  the  General  School  Law.  In  case  of  a  vacancy 
the  remaining  members  shall  fill  said  vacancy  by  appointment  until 


285 

the  next  regular  election.  Within  ten  days  after  their  election  the  mem- 
bers of  the  community  high  school  board  of  education  shall  meet  and 
organize  by  electing  one  of  their  number  president  and  by  electing  a 
secretary.  It  shall  be  the  duty  of  such  board  of  education  to  establish 
at  some  central  point  most  convenient  to  a  majority  of  the  pupils  of 
the  district  a  community  high  school  providing  for  four  years  of  high 
school  work :  Provided,  however,  that  if  a  majority  of  the  votes  cast  at 
said  election  shall  be  against  the  establishment  of  a  community  high 
school,  there  shall  not  be  another  election  held  for  a  like  purpose  for  a 
period  of  one  year.  The  expense  of  all  elections  called  by  the  county 
superintendent  of  schools  under  the  provisions  of  this  act  shall  be  paid 
by  the  county. 

SEC.  90.  An  ex  officio  board  composed  of  the  county  superintendent 
of  schools,  the  county  judge  and  county  clerk,  may  in  its  discretion 
change  the  boundaries  of  any  township  or  community  high  school  dis- 
tricts so  as : 

First — To  detach  territory  from  one  high  school  district  and  add 
the  same  to  another  high  school  district  when  petitioned  by  two-thirds 
of  the  legal  voters  residing  within  the  territory  described  in  the  petition 
asking  that  said  territory  be  detached  from  one  high  school  district  and 
added  to  an  adjacent  high  school  district,  or  when  petitioned  by  a  ma- 
jority of  the  legal  voters  of  each  high  school  district. 

"Second — To  create  a  community  high  school  district  from  territory 
belonging  to  one  or  more  high  school  districts  when  petitioned  by  two- 
thirds  of  the  legal  voters  residing  within  the  territory  described  in  the 
petition  asking  that  such  territory  be  created  into  a  new  community  high 
school  district. 

Tliird — To  detach  territory  from  a  high  school  district  and  add  the 
same  to  a  non-high  school  district  when  petitioned  by  two-thirds  of  the 
legal  voters  residing  within  such  territory. 

Fourth — To  annex  territory  not  within  a  high  school  district  to 
a  high  school  district  upon  petition  of  two-thirds  of  the  legal  voters 
residing  within  such  territory. 

Fifth — To  create  a  community  high  school  district  from  territory 
belonging  to  one  or  more  high  school  districts,  together  with  territory 
from  a  non-high  school  district  when  petitioned  by  a  majority  of  the 
logal  voter?  residing  within  each  of  respective  districts  and  non-high 
school  territory  above  described. 

If  the  districts  involved  in  the  change  of  boundaries  lie  in  two  or 
more  counties,  the  change  mav  be  made  by  the  concurrent  action  of  the 
ex  officio  boards  of  said  countiV-. 

In  all  cases  involving  the  change  of  boundary  of  high  school  dis- 
tricts an  appeal  may  be  taken  to  tho  Superintendent  of  Public  Instruc- 
tion, and  tho  Superintendent  of  Public  Instruction,  on  appeal,  shall 
have  authoritv  to  order  a  change  in  boundaries  of  all  abnormal  high 
school  districts  with  a  view  of  making  each  high  school  district  consist 
of  compact  and  contiguous  territory  comparatively  easy  of  access  to 
all  the  pupils  of  the  district,  and  to  the  end  that  justice  shall  be  done. 

The  ox  offlrio  board  vested  with  power  to  change  the  boundaries  of 
any  township  or  community  high  school  district  shall,  after  the  filing 
of  rmv  petition  as  provided  above,  give  thirtv  days'  public  notice,  by  post- 


286 

ing  in  at  least  five  public  places  in  each  district  whose  boundaries  are 
to  be  affected,  of  a  public  hearing  upon  such  petition,  and  at  such  hearing 
the  ex  officio  board  shall  hear  objections  if  any  against  such  proposed 
change. 

Within  ten  days  after  a  high  school  district  has  been  established 
under  the  provisions  of  this  act  or  after  any  change  is  made  in  the 
boundaries  of  any  district  or  districts  the  county  superintendent  of 
schools  shall  make  and  file  with  the  county  clerk  a  map  of  the  high 
school  district  or  districts  established  or  involved  in  any  change  of 
boundaries. 

Within  thirty  days  of  the  election  of  the  board  of  education  of  a 
high  school  district  as  contemplated  by  this  act,  the  county  superin- 
tendent of  schools  shall  file  in  the  office' of  the  county  clerk  a  transcript 
certified  to  by  him  showing  all  the  steps  taken  and  proceedings  had  in 
the  organization  of  said  high  school  district. 

If  any  high  school  district  organized  under  any  of  the  provisions 
of  this  act,  or  organized  under  any  statute  in  force  at  the  time  of  its 
organization,  or  legalized  by  any  statute,  shall  for  one  year  fail  to  main- 
tain a  recognized  high  school  it  shall  be  the  duty  of  the  ex  officio  board 
of  the  county  in  which  the  larger  part  of  the  district  lies  to  dissolve 
said  high  school  district  and  attach  the  territory  of  the  district  to  other 
high  school  districts,  or  to  non-high  school  districts,  or  in  part  to  both. 
All  funds  or  property  of  such  district  shall  be  distributed  by  the  county 
superintendent  of  schools  as  provided  in  section  92  of  this  act. 

The  necessary  traveling  expenses  of  the  ex  officio  board  shall  be 
paid  by  the  county. 

SEC.  91.  For  the  purpose  of  building  schoolhouses,  conducting  and 
supporting  the  high  school  and  paying  all  necessary  expenses,  the  ter- 
ritory for  the  benefit  of  which  a  high  school  is  established  under  any 
of  the  provisions  of  this  act,  and  all  high  school  districts  organized 
under  any  statute  in  force  at  the  time  of  their  organization,  and  all  high 
school  districts  legalized  by  statute,  shall  be  regarded  as  school  districts, 
and  the  board  of  education  of  each  of  said  high  school  districts  shall 
in  all  respects  have  the  powers  and  discharge  the  duties  of  boards  of 
education  elected  under  the  General  School  Law:  Provided,  however, 
that  in  all  elections  held  under  the  provisions  of  this  act  the  board  of 
education  shall  have  the  power  to  establish  a  suitable  number  of  voting 
precincts  for  the  accommodation  of  voters  of  the  district  in  which  said 
election  is  held,  and  shall  fix  the  boundaries  of  said  precincts,  and 
designate  one  polling  place  in  each,  which  precincts  shall  be  composed 
of  contiguous  territory  in  as  compact  form  as  may  be  for  the  con- 
venience of  the  electors  voting  therein.  Said  board  shall  appoint  two 
judges  and  one  clerk  for  each  polling  place,  assigning  so  far  as  prac- 
ticable at  least  one  member  of  such  board  to  each  polling  place.  Notice 
of  all  such  elections  shall  be  in  the  form  now  prescribed  by  law  and  be 
posted  by  the  said  board  of  education  in  at  least  ten  of  the  most  public 
places  in  each  of  said  voting  precincts,  at  least  ten  days  previous  to  the 
day  of  election. 

SEC.  92.  WTien  the  inhabitants  of  anv  township  or  community  high 
school  district  desire  to  have  said  district  discontinued,  the  county  super- 
intendent of  schools  of  the  county  in  which  said  district  or  the  larger 


287 

portion  thereof  is  situated,  upon  receipt  of  a  petition  signed  by  fifty 
legal  voters  of  said  district,  shall  forthwith  order  an  election  to  be  held 
in  the  manner  provided  in  section  89  of  this  act  for  the  purpose  of  voting 
"for"  or  "against"  the  proposition  of  discontinuing  the  high  school 
named  in  said  petition.  If  two-thirds  of  the  ballots  cast  at  said  election 
shall  be  in  favor  of  discontinuing  the  high  school,  the  county  superin- 
tendent of  schools  shall  direct  the  high  school  board  of  education  to 
discharge  all  outstanding  obligations,  to  distribute  the  remainder  of  the 
assets  of  the  high'  school  district  to  the  underlying  school  districts  and 
parts  of  districts  in  proportion  to  the  assessed  valuation  of  all  the  prop- 
erty of  such  school  districts  and  parts  of  districts:  Provided,  that  the 
election  called  to  vote  upon  the  proposition  of  discontinuing  a  high  school 
shall  not  be  called  within  the  period  of  two  years  from  the  establishment 
of  such  high  school  district,  nor  within  a  period  of  two  years  following 
any  such  election  called  to  vote  "upon  the  proposition  of  discontinuing 
such  high  school.  When  a  high  school  shall  be  discontinued  by  order  of 
any  court  of  competent  jurisdiction  the  assets  of  said  high  school  district 
shall  be  distributed  in  the  manner  provided  by  this  section. 

SEC.  93.  In  each  county  of  the  State,  all  the  territory  of  the  county 
not  included  in  a  township  high  school  district,  or  a  community  high 
school  district,  or  a  district  maintaining  a  recognized  four  year  high 
school,  shall  be  organized  into  a  non-high  school  district  for  the  purpose 
of  levying  a  tax  to  pay  the  tuition  of  all  eighth  grade  graduates  residing 
in  such  non-high  school  district,^  including  pupils  attending  a  recognized 
two  or  three  year  .high  school  conducted  by  a  local  school  district.  The 
board  of  education  for  said  non-high  school  district  shall  be  constituted 
as  follows:  The  county  superintendent  of  schools  shall  be  an  ex  officio 
member  of  said  board  and  secretary  thereof  but  he  shall  have  no  vote. 
The  remaining  members  of  the  non-high  school  district  board  shall  be 
elected  as  follows:  On  or  before  August  1,  1917,  the  county  superin- 
tendent of  schools  shall  call  an  election  for  the  purpose  of  electing  three 
members  of  the  board  of  education  of  said  non-high  school  district,  and 
shall  designate  a  sufficient  number  of  precincts  and  polling  places  and 
select  the  judges  and  clerks  for  such  election.  At  the  first  meeting  of 
said  board  the  length  of  the  term  of  each  of  the  said  three  elected  mem- 
bers shall  be  determined  by  lot.  One  of  said  members  shall  serve  for 
one  year,  one  for  two  years,  one  for  three  years  from  the  third  Saturday 
of  April  next  preceding  their  election.  At  the  expiration  of  the  term 
of  office  of  any  elected  member  or  members  a  successor  or  successors  shall 
be  elected,  who  shall  serve  for  three  years.  Each  subsequent  election 
shall  be  held  on  the  thjrd  Saturday  in  April.  In  case  of  a  vacancy  in 
the  said  board  of  education  the  remaining  members  shall  fill  the  vacancy 
by  appointment  until  the  next  annual  election.  Within  ten  days  after 
the  election  the  members  of  said  board  of  education  shall  meet  and 
organize  by  electing  one  of  their  number  president.  The  nomination  of 
candidates  for  members  of  the  board  of  education  for  the  non-high  school 
district  shall  be  made  only  by  petition.  All  nominating  petitions  shall 
be  filed  with  the  county  superintendent  of  schools  at  least  fifteen  days 
before  the  date  of  election.  All  petitions  shall  be  signed  by  at  least  fifty 
legal  voters  of  the  district.  The  names  of  the  candidates  shall  be  printed 
on  the  ballot  in  the  order  in  which  the  petitions  are  filed  with  the  county 


288 

superintendent  of  schools.  The  first  election  for  members  of  the  board 
of  education  for  the  non-high  school  district  shall  he  held  at  the  polling 
places  of  the  district  comprising  the  non-high  school  territory  and  the 
judges  and  clerks  of  the  district  election  boards  shall  receive  and  canvass 
the  ballots  and  seal  and  mail  them  to  the  county  superintendent  of 
schools.  The  county  superintendent  of  schools  shall  file  the  results  of 
said  election  with  the  county  clerk.  The  ballots  to  be  used  at  the  election 
held  for  the  selection  of  members  of  the  board  of  education  of  the  non- 
high  school  district  shall  be  furnished  by  the  county  and  shall  be  in  the 
form  prescribed  by  the  county  superintendent  of  schools.  Voters  shall 
make  a  cross  mark  in  the  square  preceding  the  name  or  names  of  the 
candidates  of  his  choice  and  the  ballots  shall  be  so  counted.  At  all  suit- 
sequent  elections  in  the  non-high  school  districts  the  vote  shall  be  can- 
vassed by  the  non-high  school  board  and  the  results  filed  with  the  county 
clerk.  The  polling  place  for  subsequent  elections  in  the  non-high  school 
district  shall  be  designated  by  the  board  of  education  of  the  non-high 
school  district.  The  manner  of  holding  elections  shall  be  governed  by 
sections  126  and  126a  of  the  General  School  Law,  except  where  otherwise 
specifically  directed  herein. 

None  of  the  provisions  of  this  act  regarding  the  establishment  of  non- 
high  school  districts  shall  be  construed  to  prevent  the  organization  of  any 
territory  of  such  non-high  school  districts,  into  township  or  community 
high  school,  school  districts. 

SEC.  94.  The  board  of  education  of  a  non-high  school  district  shall 
have  the  following  powers  and  it  shall  be  its  duty : 

First — To  levy  a  tax  annually  upon  all  the  taxable  property  of  such 
nonhigh  school  district,  not  to  exceed  one  per  cent  upon  the  valuation  to 
be  ascertained  by  the  last  assessment  for  State  and  county  purposes,  for 
the  purpose  of  paying  the  tuition  of  all  eighth  grade  graduate^  residing 
within  such  non-high  echool  district,  attending  any  two,  three  or  four 
year  recognized  high  school.  Such  tax  levy  shall  be  certified  and  re- 
turned to  the  county  clerk  on  or  before  the  first  Tuesday  in  October. 
The  certificate  shall  be  signed  by  the  president  and  secretary  of  the  board 
and  may  be  in  the  following  form,  to  wit: 

CERTIFICATE  OF  TAX  LEVY. 

We  hereby  certify  that  we  require  the  sum  of dollars 

to  be  levied  as  a  special  tax  to  pay  the  tuition  of  graduates  of  the  eighth 

grade  residing  in  the  non-high  school  district  of ,  county 

on  the  equalized  assessed  valuation  of  the  taxable  property  of  our  non- 
high  school  district. 

Signed  this day  of . v ,  19 .  . .  . 

A B ,  President. 

r D ,  Secretary. 

A  failure  to  certil'v  and  return  the  certificate  of  tax  levy  to  the 
county  clerk  in  the  time  required  shall  not  vitiate  the  assessment. 

Second — To  issue  orders  on  the  county  treasurer  on  or  before  the 
first  Tuesday  of  May  of  each-  year  for  the  payment  of  the  tuition  of 
eighth  grade  graduates  residing  within  such  non-high  school,  district 
attending  a  recognized  high  school,  provided  such  attendance  shall  bo 
certified  to  said  board  by  the  board  of  education  of  the  high  school 


289 

attended.     Such  orders  shall  be  payable  out  of  any  funds  belonging  to 
said  non-high  school  district. 

Third — To  make  such  reports  as  may  be  required  by  the  State 
Superintendent  of  Public  Instruction  and  by  the  county  superintendent 
of  schools. 

Fourth — To  pay  election  expenses  and  other  necessary  incidental 
expenses  out  of  the  funds  of  the  non-high  school  district. 

SEC.  95.  The  county  treasurer  shall  be  the  treasurer  of  the  non- 
high  school  district  of  the  county.  He  shall  receive  and  hold  all  moneys 
belonging  to  said  district  and  shall  pay  out  the  same  upon  lawful 
orders  issued  by  the  board  of  education  of  said  non-high  school  district. 
He  shall  report  to  the  secretary  of  the  board  of  education  of  the  non-high 
school  district  on  or  before  the  thirtieth  day  of  June  annually  the 
receipts  and  expenditures  of  funds  belonging  to  said  district  and  the 
balance  on  hand.  He  shall  make  annually  a  complete  report  to  the 
county  superintendent  of  schools,  including  therein  whatever  statistics 
may  be  required  by  the  county  superintendent  and  shall  perform  such 
other  duties  in  connection  with  the  non-high  school  district  as  are  per- 
formed by  the  township  treasurers  for  school  districts  as  required  by 
the  General  School  Law. 

SEC.  96.  Upon  the  approval  of  the  county  superintendent  of  schools 
any  high  school  pupil  may  attend  a  recognized  high  school  more  con- 
venient in  some  district  other  than  the  high  school  district  in  which  he 
resides  and  the  board  of  education  of  the  high  school  district  in  which 
said  pupil  resides  shall  pay  the  tuition  of  such  pupil,  provided,  said 
tuition  shall  not  exceed  the  per  capita  cost  of  maintaining  the  high, 
school  attended. 

Any  eighth  grade  graduate  residing  in  a  non-high  school  district 
may  attend  any  recognized  two,  three  or  four  year  high  school,  and 
his  tuition  shall  be  paid  by  the  board  of  education  of  the  non-high  school 
district  in  which  he  resides. 

An  eighth  grade  graduate  in  the  meaning  of  this  act  is  any  person 
of  school  age  who  gives  satisfactory  evidence  of  having  completed  the 
first  eight  grades  of  school  work  by  presenting  a  certificate  of  pro- 
motion issued  by  the  home  school  board,  or  by  passing  an  examination 
given  by  the  county  superintendent  of  schools  or  by  passing  an  examin- 
ation given  by  the  school  attended. 

A  recognized  high  school  in  the  meaning;  of  this  act  is  any  public 
high  school  providing  a  course  of  two  or  more  years  of  work  approved 
by  the  Superintendent  of  Public  Instruction. 

The  tuition  paid  shall  in  no  case  exceed  the  per  capita  cost  of  main- 
taining the  high  school  attended,  excluding  therefrom  interest  paid  on 
bonded  indebtedness,  which  shall  be  computed  by  dividing  the  total  cost 
of  conducting  and  maintaining  the  said  high  school  by  the  average 
number  of  pupils  enrolled  including  tuition  pupils. 

SEC.  2.  An  Act  entitled,  "An  Act  to  provide  high  school  privileges 
for  graduates  of  the  eighth  grade,"  approved  June  26,  1913,  in  force 
July  1,  1913,  and  all  other  acts  and  parts  of  acts  in  conflict  with  this 
amending  act  are  hereby  repealed. 

APPROVED  June  22,  1917. 
—19  I  H  S 


290 


APPENDICES. 


APPEXDIX  F. 


HIGH  SCHOOL  DISTKICTS  VALIDATED. 

When  the  Township  High  School  Law  of  1911  was  declared  uncon- 
stitutional in  the  fall  of  1916  many  high  schools  had  been  organized 
under  it.  These  schools  were  in  all  stages  of  development.  Some  were 
fully  organized  with  building  and  complete  equipment;  others  had  only 
sold  bonds  for  the  purpose  of  buying  a  site  and  erecting  a  building.  The 
decision  of  the  court  left  them  without  legal  status  except  as  they  might 
exist  as  de  facto  high  schools.  The  Fiftieth  General  Assembly  passed  a 
law  to  validate  these  districts.  This  law  is  as  follows : 
AN  ACT  to  legalize  the  organization  of  certain  high  school  districts. 

SECTION  1.  Be  it  enacted  by  the  People  of  the  State  of  Illinois, 
represented  in  the  General  Assembly:  That  in  all  cases  where  a 
majority  of  the  inhabitants  of  any  contiguous  and  compact  territory 
voting  on  the  proposition,  having  voted  at  any  election  called  for  the 
purpose  by  a  county  superintendent  of  schools  in  favor  of  the  organiza- 
tion of  such  territory  into  a  high  school  district,  and  when  at  a  subse- 
quent election  similarly  called  and  held  'a  board  of  education  has  been 
-chosen  for  such  district,  each  such  election  is  hereby  made  legal  and 
valid  and  such  territory  is  hereby  declared  legally  and  validly  organized 
and  established  as  a  high  school  district,  and  a  valid  and  existing  school 
district  and  body  politic  and  corporate  of  this  State  for  the  purpose  of 
establishing  and  maintaining  a  high  school.  The  board  of  education 
acting  for  each  such  district  is  hereby  declared  to  be  the  duly  constituted 
corporate  authority  thereof,  and  each  such  board  shall  hereafter  consist 
of  a  president  anci  six  members,  and  shall  be  elected  and  organized  in 
the  same  manner  and  have  the  powers  and  discharge  the  duties  of  boards 
of  education  of  school  districts  as  provided  by  sections  123,  125,  126, 
126a  and  12?  of  an  act  of  the  General  Assembly  of  the  State  of  Illinois 
•entitled,  "An  Act  to  establish  and  maintain  a  system  of  free  schools," 
approved  June  12,  1909.  as  said  sections  now  exist  or  may  from  time  to 
time  be  amended. 

SBC.  2.  All  acts  and  proceedings  heretofore  done,  had  or  performed 
by  each  such  district  and  the  persons  from  time  to  time  elected  and 
acting  as  the  board  of  education  thereof,  such  as  are  authorized  to  be 
done,  had  or  performed  by  school  districts  or  boards  of  education  thereof 
by  the  general  school  laws  of -this  State  are  hereby  declared  to  be  legal 
.and  valid  in  all  respects. 


291 

SEC.  3.  Whenever  there  are  two  such  districts  which  overlap  in  ter- 
ritory, that  district  which  shall  have  first  established  and  now  continues 
to  conduct  a  high  school,  is  hereby  validated  and  confirmed. 

SEC.  4.  All  pending  actions  attacking  the  organization  of  districts 
coming  under  the  provisions  of  this  act  shall  abate. 

SEC.  5.  The  invalidity  of  any  section  of  this  act  shall  not  affect  the 
remainder  thereof. 

SEC.  6.  WHEREAS,  an  emergency  exists,  therefore  this  act  shall  be 
in  full  force  and  effect  from  and  after  its  passage  and  approval. 

APPROVED  and  in  force  June  14,  1917. 


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